and Performance Information

Fiscal Year 2013

BUDGET

JUSTIFICATIONS

The United States

Department of the Interior

NOTICE: These budget

justifications are prepared

 for the Interior, Environment 

and Related Agencies 

Appropriations Subcommittees. 

Approval for release of the 

justifications prior to their 

printing in the public record of 

the Subcommittee hearings

may be obtained through

the Office of Budget of the 

Department of the Interior.

BUREAU OF 

LAND MANAGEMENT
Bureau of Land Management 2013 Budget Justifications 

Table of Contents Page - i 

TABLE OF CONTENTS

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

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

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

 Providing for the Nation’s Needs ........................................................................................ I-2 

 2013 Budget Overview ....................................................................................................... I-3 

 Partners and Volunteers ..................................................................................................... I-5 

 Greater Sage-Grouse Conservation ................................................................................... I-5 

 America’s Great Outdoors .................................................................................................. I-5 

 New Energy Frontier ........................................................................................................... I-6 

 Landscape Conservation Cooperatives .............................................................................. I-7 

 Youth in the Great Outdoors ............................................................................................... I-8 

 Other Priority Increases ...................................................................................................... I-8 

 Campaign to Cut Waste ...................................................................................................... I-8 

 Organizational Structure ..................................................................................................... I-9 

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

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

 Land Acquisition – America’s Great Outdoors ................................................................... II-2 

 New Energy Frontier .......................................................................................................... II-3 

 Other Program Increases .................................................................................................. II-4 

 Other Program Decreases ................................................................................................. II-5

 Internal Transfers ............................................................................................................... II-6 

 Fixed Costs ........................................................................................................................ II-7 

 Legislative and Administrative Changes ............................................................................ II-7 

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

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

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

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

IV. Initiatives ........................................................................................................................ IV-1 

 America’s Great Outdoors ............................................................................................... IV-1 

 New Energy Frontier ........................................................................................................ IV-4 

 Greater Sage-Grouse Conservation ................................................................................ IV-6 

V. Crosscutting Programs .................................................................................................. V-1 

 National Landscape Conservation System ....................................................................... V-1 

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

 Units of the National Landscape Conservation System ........................................ V-4 

 National Monuments and National Conservations Areas ..................................... V-5 

 Wilderness and Wilderness Study Areas .............................................................. V-5 
Bureau of Land Management 2013 Budget Justifications 

Table of Contents Page - ii 

 Wild and Scenic Rivers ......................................................................................... V-5 

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

 Service First ...................................................................................................................... V-8 

 Education ........................................................................................................................ V-10 

 Interpretation ................................................................................................................... V-12 

 Partnerships .................................................................................................................... V-13 

 Volunteers ....................................................................................................................... V-15 

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

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

VII. Collections .................................................................................................................... VII-1

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

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

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

 Appropriation Language Citations ................................................................................. VIII-2 

 Authorizations ................................................................................................................ VIII-2 

 Summary of Requirements .......................................................................................... VIII-21 

 Justification of Fixed Costs and Related Changes ...................................................... VIII-25 

 Activity: Land Resources ............................................................................................. VIII-27

 Subactivity: Soil, Water, and Air Management ................................................. VIII-29 

 Subactivity: Rangeland Management .............................................................. VIII-35 

 Subactivity: Public Domain Forest Management ............................................. VIII-45 

 Subactivity: Riparian Management .................................................................. VIII-51 

 Subactivity: Cultural Resources Management ................................................. VIII-57 

 Subactivity: Wild Horse & Burro Management ................................................. VIII-63 

 Activity: Wildlife and Fisheries Management ............................................................... VIII-69 

 Subactivity: Wildlife Management .................................................................... VIII-71 

 Subactivity: Fisheries Management ................................................................. VIII-83 

 Activity: Threatened and Endangered Species Management ...................................... VIII-87 

 Activity: Recreation Management ................................................................................ VIII-93 

 Subactivity: Wilderness Management .............................................................. VIII-95 

 Subactivity: Recreation Resources Management ............................................ VIII-99 

 Activity: Energy and Minerals Management .............................................................. VIII-107 

 Subactivity: Oil and Gas Management ........................................................... VIII-109 

 Subactivity: Coal Management ...................................................................... VIII-121 

 Subactivity: Other Mineral Resources ............................................................ VIII-125 

 Subactivity: Renewable Energy Management ............................................... VIII-129 

 Activity: Realty and Ownership Management ............................................................ VIII-135 

 Subactivity: Alaska Conveyance and Lands .................................................. VIII-137 

 Subactivity: Cadastral Survey ........................................................................ VIII-145 

 Subactivity: Lands and Realty Management .................................................. VIII-151 

 Activity: Communication Site Management ............................................................... VIII-155 

 Activity: Resource Protection and Maintenance ........................................................ VIII-159 

 Subactivity: Resource Management Planning ............................................... VIII-161 

 Subactivity: Abandoned Mine Lands .............................................................. VIII-171 

 Subactivity: Resource Protection and Law Enforcement ............................... VIII-179 

 Subactivity: Hazardous Materials Management ............................................. VIII-187 

 Activity: Transportation and Facilities Maintenance ................................................... VIII-193 
Bureau of Land Management 2013 Budget Justifications 

Table of Contents Page - iii 

 Subactivity: Deferred Maintenance and Capital Improvements ..................... VIII-197 

 Subactivity: Annual Maintenance and Operational Costs .............................. VIII-203 

 Activity: National Landscape and Conservation System ........................................... VIII-207 

 Activity: Land and Resource Information Systems .................................................... VIII-215 

 Activity: Challenge Cost Share .................................................................................. VIII-217 

 Activity: Workforce and Organizational Support ........................................................ VIII-219 

 Subactivity: Information Systems Operations ................................................ VIII-231 

 Subactivity: Administrative Support ............................................................... VIII-233 

 Subactivity: Bureauwide Fixed Costs ............................................................. VIII-237 

 Subactivity: Information Technology Management ........................................ VIII-241 

 Activity: Mining Law Administration ........................................................................... VIII-245 

 Budget Schedules ...................................................................................................... VIII-253 

IX. Construction .................................................................................................................. IX-1

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

 Authorizations .................................................................................................................. IX-1 

 Summary of Requirements .............................................................................................. IX-2 

 Activity: Construction ....................................................................................................... IX-3 

 Budget Schedules ............................................................................................................ IX-4 

X. Land Acquisition ............................................................................................................. X-1

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

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

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

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

 Activity: Land Acquisition .................................................................................................. X-5 

 Subactivity: Land Acquisition ................................................................................ X-7 

 Subactivity: Inholding, Emergency and Hardship ............................................... X-31 

 Subactivity: Acquisition Management ................................................................. X-33 

 Budget Schedules ........................................................................................................... X-35 

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

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

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

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

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

 Appropriation Description ................................................................................................ XI-4 

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

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

 Activity: Western Oregon Resources Management ....................................................... XI-27 

 Activity: Western Oregon Information and Data Systems .............................................. XI-51 

 Activity: Western Oregon National Landscape Conservation System ........................... XI-53 

 Budget Schedules .......................................................................................................... XI-57 

XII. Range Improvements ................................................................................................... XII-1

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

 Appropriations Language Citations and Authorizations .................................................. XII-1 
Bureau of Land Management 2013 Budget Justifications 

Table of Contents Page - iv 

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

 Appropriation: Range Improvements .............................................................................. XII-5 

 Budget Schedules ........................................................................................................... XII-9 

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

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

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

 Summary of Requirements ............................................................................................ XIII-3 

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

 Budget Schedules .......................................................................................................... XIII-7 

XIV. Miscellaneous Permanent Payments ......................................................................... XIV-1

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

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

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

 Summary of Requirements ............................................................................................ XIV-6 

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

 2011 Total Payments of BLM Receipts to States and Counties .................................. XIV-12 

 Budget Schedules ........................................................................................................ XIV-13 

XV. Permanent Operating Funds ....................................................................................... XV-1

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

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

 Authorizations ................................................................................................................. XV-1 

 Summary of Requirements ............................................................................................. XV-5 

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

 Budget Schedules ......................................................................................................... XV-16 

XVI. Miscellaneous Trust Funds ...................................................................................... XVI-1

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

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

 Authorizations ................................................................................................................ XVI-2 

 Summary of Requirements ............................................................................................ XVI-3 

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

 Budget Schedules .......................................................................................................... XVI-6 

XVII. Helium Fund and Operations .................................................................................. XVII-1

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

 Explanation ................................................................................................................... XVII-1 

 Summary of Requirements ........................................................................................... XVII-2 

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

 Budget Schedules ......................................................................................................... XVII-6 

XVIII. Administrative Provisions ...................................................................................... XVIII-1 

 Appropriations Language ............................................................................................. XVIII-1 
Bureau of Land Management 2013 Budget Justifications 

Table of Contents Page - v 

 Appropriations Language Citations .............................................................................. XVIII-1 

 
Bureau of Land Management 2013 Budget Justifications 

Table of Contents Page - vi 

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Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 2 

the United States and more than 40 percent of all land managed by the Federal government, 

making the BLM the Nation’s largest single land manager. 

Located primarily in 11 western states, including Alaska, BLM-managed lands encompass a 

broad diversity of habitats including extensive desert, grassland, sage-steppe, forest, highmountain, and arctic-tundra, landscapes. Some of the most ecologically pristine and 

biophysically significant landscapes managed by the BLM are those in its 27-million-acre 

National Landscape Conservation System (NLCS). 

The diversity of BLM’s habitat and landscapes is matched by the diversity of uses that the BLM 

manages. The BLM's unique multiple-use management of public lands includes activities as 

varied as energy production, mineral development, livestock grazing, outdoor recreation, and 

the conservation of natural, historical, cultural, and other important resources. Many of these 

activities contribute to the vitality of State and local economies. 

PROVIDING FOR THE NATION’S NEEDS

Management of natural and cultural resources and protection of American values on public 

lands results in extraordinary economic and other benefits to local communities and to the 

Nation. In addition, revenues generated from the public lands directly benefit the U.S. taxpayer. 

According to analysis prepared for the 2010 Department of the Interior Economic Impact 

Report1

, extractive and non-extractive uses of BLM-managed lands and minerals generated an 

estimated total economic output of slightly more than $127 billion nationwide in fiscal year 2010. 

These activities supported approximately 500,000 full and part-time jobs nationwide (total 

employment). 

The BLM’s contribution to America’s energy portfolio constitutes a key component of these 

economic benefits. During calendar year 2011, the BLM held 32 onshore oil and gas lease 

sales, offering 1,755 parcels of land covering nearly 4.4 million acres. Of those, 1,296 were sold 

– nearly three-quarters of those offered – generating about $256 million in revenue for American 

taxpayers. Onshore mineral leasing revenues are estimated to be $4.4 billion in 2013. 

The 2011 lease sale figures are 20 percent higher than those in calendar year 2010. The largest 

sale in 2011 occurred in Billings, Montana, contributing more than $66 million for the American 

taxpayers. There are currently approximately 38 million acres of oil and gas leases, and since 

only about 32 percent of that acreage is currently in production, the BLM is working to provide 

greater incentive for lessees to make production a priority. 

In fiscal year 2011, the Department of the Interior collected royalty on more than 97 million 

barrels of oil produced from onshore Federal minerals, and production of nearly 3 TCF (trillion 

cubic feet) of natural gas made it one the most productive years on record. BLM-managed 

Federal Coal leases power more than 20% of the energy generated in the United States. The 

BLM is also actively promoting solar, wind, and geothermal energy development on Federal 

lands. Nearly 40 percent of U.S. geothermal energy production capacity is on public lands. 

The BLM contributes to local communities and the national economy in many ways other than 

 

1 The 2011 Department of the Interior Economic Impact Report is scheduled to be published in June, 2012.
Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 3 

energy production. More than $5 billion in annual economic benefits are estimated to result from 

timber- and grazing-related activities and non-energy mineral production from BLM-managed 

forests, range, and mineral-estate lands (per the 2010 Report). Public land recreational activities 

also provide major economic benefits to economies in nearby communities. More than 59 

million recreational visits took place on BLM-managed lands in 2011 alone. Recreational 

hunters, off-road vehicle enthusiasts, mountain bikers, backpackers, anglers, and 

photographers discover endless opportunities on BLM-managed lands. These and many other 

recreational opportunities are vital to the quality of life enjoyed by residents of, and national and 

international visitors to, the increasingly urbanized western states. 

2013 BUDGET OVERVIEW

The BLM’s budget request allows the BLM to participate in a number of important initiatives, 

including the America’s Great Outdoors and the New Energy Frontier, and to implement a 

number of BLM priorities such as restoring landscapes and conserving habitat for sage grouse, 

expanding research into population controls for wild horses, and reforming hardrock mining on 

the public lands. The Budget makes strategic funding shifts to target high-priority initiatives, 

scales back on lower-priority programs, and sustain and expand energy program activities while 

minimizing the costs to taxpayers by shifting $48.0 million in inspection costs to industry. BLM 

will also emphasize management reforms to curb administrative expenses through 

improvements in information technology, employee travel, and other means. 

The budget also puts forth several important legislative proposals, including proposals to charge 

a fee on hardrock mining on Federal and non-Federal lands, institute a leasing system for 

certain hardrock minerals on public lands, collect fees to be used to remediate abandoned 

mines, charge a fee on new nonproducing oil and gas leases to encourage diligent 

development, repeal oil and gas mandatory funds, and reauthorize the Federal Land 

Transaction Facilitation Act. 

The total 2013 budget request is $1.1 billion in current authority approximately level with 2012 

enacted. The budget proposes $952.0 million for the Management of Lands and Resources 

Appropriation and $112.0 million for the Oregon and California Grant Lands Appropriation, the 

BLM’s two main operating accounts. This represents a net decrease of $8.2 million for these 

two accounts from the 2012 enacted level. The budget change is largely the result of a proposal 

to shift the cost of oil and gas inspections to industry fees, which allows for a significant 

reduction in the request for appropriated dollars. The table below summarizes the 2013 budget 

request by types of appropriation. 

Table 1: Total 2013 BUDGET REQUEST ($000s) 

Budget Authority 2011 

Actual 

2012 

Enacted 

2013 

President's 

Budget 

2013 PB 

vs. 2012 

Enacted 

Current Discretionary 1,113,936 1,098,139 1,097,635 -504

Current Mandatory 35,435 29,700 29,700 +0

Total Current 1,149,371 1,127,839 1,127,335 -504

Permanent 150,012 149,151 178,086 +28,935

Total Current and Permanent 1,299,383 1,276,990 1,305,421 +28,431

FTEs 10,635 10,489 10,365 -124
Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 4 

The table below summarizes 2013 budget request by major appropriations. 

 Table 2: Bureau of Land Management Appropriations ($000s) 

Appropriation 

2011 

Actual 

2012 

Enacted 

2013 

President's 

Budget 

Request 

2013 PB 

vs. 2012 

Enacted 

CURRENT DISCRETIONARY 

 Management of Land and Resources (MLR)* 976,029 960,361 952,017 -8,344

 Oregon and California Grant Lands 111,334 111,864 112,043 +179

 Land Acquisition 21,956 22,344 33,575 +11,231

 Construction 4,617 3,570 0 -3,570

 Service Charges, Deposit, and Forfeitures [30,813] [31,063] [31,053] -10

TOTAL - Current Discretionary 1,113,936 1,098,139 1,097,635 -504

 

CURRENT MANDATORY 

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

 Miscellaneous Trust Funds 25,435 19,700 19,700 +0

TOTAL - Current Mandatory 35,435 29,700 29,700 +0

 

TOTAL - CURRENT 1,149,371 1,127,839 1,127,335 -504

 

PERMANENT FUNDS 

 Miscellaneous Permanent Payment Accounts 89,196 51,887 21,511 -30,376

 Permanent Operating Funds 59,430 95,464 154,775 +59,311

 Miscellaneous Trust Funds (Permanent) 1,386 1,800 1,800 +0

TOTAL - PERMANENT 150,012 149,151 178,086 +28,935

 

TOTAL - CURRENT and PERMANENT 1,299,383 1,276,990 1,305,421 +28,431

 

OFFSETTING COLLECTIONS** 

 Mining Law Administration 36,696 39,696 39,696 +0

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

 Applications for Permit to Drill (APD Fees) 31,228 32,500 32,500 +0

 Inspection Fees 0 0 47,950 +47,950

 Service Charges, Deposit, and Forfeitures 30,813 31,063 31,053 -10

 Helium Fund 201,261 174,105 174,900 +795

TOTAL - Funds Available from Offsets 301,998 279,364 328,099 +48,735

* 2011 Actual amount for MLR reflects a 2011 Enacted level of $961,779,000, adjusted for net transfers ($-22,000) and an 

increase of $14,272,000 to adjust for actual APD Fee Collections of $31,228,000. 

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

appropriation totals because funding is offset by collections. 
Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 5 

Major aspects of the BLM’s budget are summarized below. Each program increase, decrease, 

transfer, legislative and administrative change, is described in detail in the Summary of Program 

and Legislative Changes section. 

PARTNERS AND VOLUNTEERS

A crucial factor in the BLM’s ability to fulfill its diverse mission and many responsibilities 

continues to be strong engagement with partner organizations and volunteers in the 

management of the public lands. Reciprocal partnerships and volunteer opportunities are even 

more critical. Through partnerships with organizations and local communities, and through the 

generosity of volunteers, the BLM effectively leverages external resources, and expands its 

ability to meet public-land management goals. Partnerships also foster an enhanced sense of 

stewardship and community for the people most closely connected to those lands. 

SAGE-GROUSE CONSERVATION

The 2013 Budget includes an increase of $15.0 million to implement broad-scale sage-grouse 

planning, conservation, and restoration activities to ensure the long-term sustainability of sagegrouse and the suite of species that are dependent on sagebrush for their survival, and to help 

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

BLM, which manages more habitat for the Greater sage-grouse than any other government 

agency, has been working proactively on this issue on a number of fronts. Ten million of the 

$15.0 million increase will be used to incorporate conservation measures into as many as 98 

land use plans in 68 planning areas. The BLM will amend these land use plans to provide the 

regulatory certainty requested by the Fish and Wildlife Service, which will evaluate the species 

for possible listing by 2015. The Budget also includes funds for the BLM to engage in additional 

habitat restoration and improvement work, and to continue to collect data on sage-grouse 

populations across the West. 

AMERICA’S GREAT OUTDOORS

On April 16, 2010, President Obama announced the America’s Great Outdoors (AGO) initiative, 

launching the development of a 21stcentury conservation and recreation agenda. The result is a 

call for a grassroots approach to protecting our lands and waters and connecting all Americans 

to their natural and cultural heritage. The AGO initiative seeks to empower all Americans to 

share in the responsibility to conserve, restore, and provide better access to our lands and 

waters in order to leave a healthy, vibrant outdoor legacy for generations to come. Funding for 

the initiative is broadly defined to capture programs that are key to attaining conservation goals. 

That includes funding to operate and maintain our public lands; expand and improve 

recreational opportunities at the state and local level; protect cultural resources; and conserve 

and restore land, water, and native species. 

According to the U.S. Census Bureau, the population of the western United States has 

increased 156 percent since 1960, and one of the most significant management challenges for 

the BLM stems from this rapid population growth and the increased demands for access to, and 

utilization of, the public lands that have accompanied it. The BLM’s customers are as diverse as 

the natural resources the bureau manages. In the rapidly urbanizing west, over 40 million 
Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 6 

Americans living in more than 4,000 nearby cities and communities can access BLM-managed 

public lands right in their own backyards. Within a day’s drive of 16 major urban areas are over 

100 million acres of BLM-managed public lands. In 2011, there were approximately 58 million 

visitors to BLM lands, many of whom participated in recreational activities such as wildlife 

watching, hiking, camping, hunting, and whitewater rafting. 

Given the proximity of the public lands to these population centers, the BLM is in a unique 

position to contribute significantly in advancing the President’s initiative to reconnect Americans, 

and especially our Nation’s youth, to the great outdoors. The AGO initiative promotes the BLM’s 

multiple-use mission by expanding opportunities for recreational activities – including hunting, 

fishing, and off-road vehicle use – while enhancing the conservation and protection of BLMmanaged lands and resources. All of these activities have a place at the multiple-use table and 

strengthen the BLM’s connection to western communities and to visitors to the public lands. 

The America’s Great Outdoors Initiative includes the BLM’s 27-million-acre NLCS. These lands 

are some of the most ecologically pristine and biophysically significant landscapes managed by 

the BLM. The mission of the NLCS is to conserve, protect, and restore nationally-significant 

landscapes recognized for their outstanding cultural, ecological, and scientific values. The BLM 

recently released its 15-year strategy to establish the management direction for all NLCS units. 

The BLM will facilitate and create partnerships to meet the challenges of conservation, improve 

real opportunity and access for all to enjoy their great outdoors, help solidify the role of 

conservation on a landscape scale, and support diverse recreation as part of the economies of 

local communities. The 2013 budget includes $6.3 million in program increases for various 

AGO-related programs in the operating accounts, including programs in the NLCS. The budget 

also includes an increase of $11.2 million for land-acquisition. 

NEW ENERGY FRONTIER

The Secretary’s New Energy Frontier initiative emphasizes the value of scientifically-based, 

environmentally-sound development of both renewable and conventional energy resources on 

the Nation’s public lands. The BLM’s FY 2013 budget request advances the goals of the 

initiative by including priority funding for both renewable and conventional energy development 

on public lands. 

Renewable Energy – President Obama, Secretary Salazar, and the Congress have stressed the 

critical importance of renewable energy to the future of the United States. Success in attaining 

the Nation’s goals to reduce greenhouse gas emissions, mitigate climate change, and protect 

the global environment relies on sustained efforts to develop renewable energy resources. 

Renewable energy production is vital to our Nation’s long-term economic development and 

energy security. The development of renewable energy creates American jobs and promotes 

innovation in the United States while reducing the country’s reliance on fossil fuels. 

The BLM has identified approximately 20.6 million acres with wind energy potential in eleven 

western states, 20 million acres with solar energy potential in six southwestern states, and 111 

million acres are open to geothermal leasing in several western states and Alaska. Public lands 

also provide crucial transmission corridors for renewable energy generated on non-Federal 

lands. In 2011, 40 percent of the Nation’s geothermal production capacity derived from BLMmanaged public land. 
Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 7 

The 2013 budget request includes a total program increase of $7.0 million in the Renewable 

Energy Management program, including $5.0 million in new funding. This will support additional 

environmental studies to accelerate the identification of prime areas for utility scale renewable 

energy project development. It will also enable BLM to continue ongoing program management 

responsibilities associated with geothermal energy development by replacing mandatory funding 

previously provided by the Geothermal Steam Act Implementation Fund, which has expired The 

remaining $2.0 million increase is a transfer of geothermal funds from the Oil and Gas 

Management program to the Renewable Energy program. 

Conventional Energy – Secretary Salazar has emphasized that conventional energy resources 

on BLM-managed lands continue to play a critical role in meeting the Nation’s energy needs. In 

2011, conventional energy development from public lands produced 43 percent of the Nation’s 

coal, 13 percent of its natural gas, and 5 percent of the domestically-produced oil. The 

Department’s balanced approach to responsible conventional energy development combines 

onshore oil and gas policy reforms with effective budgeting to provide appropriate planning and 

support for conventional energy development, which has been the target of increased appeals 

and protests. 

Ensuring that oil and gas production is carried out in a responsible manner is a primary BLM 

commitment. The BLM conducts inspections to confirm that lessees meet environmental, safety, 

and production reporting requirements. The 2013 budget proposes to charge industry fees 

totaling $48 million to recover inspection costs for the oil and gas program. Of this fee revenue, 

$10 million will be used to support an expanded inspection program, with the remaining savings 

of $38.0 million offsetting BLM’s overall direct appropriations funding. The fee would defray 

Federal costs and ensure continued diligent oversight of oil and gas production on Federal 

lands. Fee levels would be based on the number of oil and gas wells per lease so that costs are 

shared equitably across the industry. 

Reforms in the oil and gas leasing program have established a more orderly, open, and 

environmentally sound process for developing oil and gas resources on public lands. In an effort 

to reduce protests, the BLM is conducting planning, engaging the public, and evaluating 

environmental concerns earlier in the process. Since the reforms’ implementation, the number 

of protests has declined and the protests that are received can now be resolved more quickly. In 

fiscal year 2011, 36 percent of BLM’s oil and gas leases were protested – down from 47 percent 

in 2009. 

To encourage diligent development of new oil and gas leases, the Administration is proposing a 

per-acre fee on each nonproducing lease issued after enactment of the proposal. The $4 per 

acre fee on non-producing Federal leases (onshore and offshore) would provide a financial 

incentive for oil and gas companies to either put their leases into production or relinquish them 

so that tracts can be re-leased and developed by new parties. 

LANDSCAPE CONSERVATION COOPERATIVES

Unprecedented, widespread environmental and human influences are shaping ecological 

conditions across the public lands. Major large-scale stressors include climate change, 

catastrophic wildland fire, invasive species, population growth, and conventional and renewable 

energy development. To better understand these factors, in 2013 the BLM will continue 

participation in the Landscape Conservation Cooperatives (LCCs) with other DOI bureaus and 
Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 8 

partners. Funding will enable managers to conduct additional eco-regional assessments to 

provide a better understanding of adverse impacts to the health of BLM lands and the larger 

western landscapes of which they are a part, and to implement various land-health treatments 

to help combat the effects of these impacts. For more information on landscape conservation 

cooperatives, see the section entitled Landscape Approach To Managing The Public Lands in 

the Crosscutting Programs chapter. 

YOUTH IN THE GREAT OUTDOORS

Through his Youth in the Great Outdoors initiative, Secretary Salazar has pledged to create the 

next generation of conservation leaders using youth education, engagement, and employment 

programs. Many of today’s youth have fewer opportunities than in previous generations to 

experience the outdoors, and the BLM is working to foster personal connections between young 

people and our Nation’s public lands and resources. Through various programs to conduct 

natural resources work such as inventorying and monitoring, trails construction, and habitat 

restoration, the BLM employs young people to encourage their pursuit of careers in natural 

resources and to promote public-land stewardship. The BLM will continue to support youth 

programs and partnerships and contribute to the Department’s goal to increase employment of 

youth between the ages of 15-25 in the conservation mission of the Department by the end of 

2012. 

OTHER PRIORITY INCREASES

The BLM’s 2013 budget includes increases for several other priority programs, including a 

proposal to fund additional research on population controls for wild horses; an increase for 

timber programs in Western Oregon; and an increase for developing land use plans, which are 

the foundation for all of BLM’s activities. 

PROGRAM DECREASES

Difficult choices were made during the formulation of the 2013 budget in order to support the 

initiatives and priorities described above. Reductions are proposed for the Rangeland 

Management; Public Domain Forestry; Alaska Conveyance; Youth; Abandoned Mine Lands; 

and the Oregon and California Lands Act programs. Decreases in the Rangeland Management 

program will be partially mitigated by a new grazing administrative fee estimated to generate 

$6.5 million in 2013 to assist the BLM is processing permits. 

CAMPAIGN TO CUT WASTE

Over the last two years, the Administration has implemented a series of management reforms to 

curb uncontrolled growth in contract spending, terminate poorly performing information 

technology projects, deploy state of the art fraud detection tools, focus agency leaders on 

achieving ambitious improvements in high priority areas, and open Government up to the public 

to increase accountability and accelerate innovation. 
Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 9 

In November 2011, President Obama issued an Executive Order reinforcing these performance 

and management reforms and the achievement of efficiencies and cost-cutting across the 

government. This Executive Order identifies specific savings as part of the Administration’s 

Campaign to Cut Waste to achieve a 20 percent reduction in administrative spending from 2010 

to 2013. Each agency is directed to establish a plan to reduce the combined costs associated 

with travel, employee information technology devices, printing, executive fleet efficiencies, and 

extraneous promotional items and other areas. 

The Department of the Interior’s goal is to reduce administrative spending by $207 million from 

2010 levels by the end of 2013. To meet this goal, the Department is leading efforts to reduce 

waste and create efficiencies by reviewing projected and actual administrative spending to 

allocate efficiency targets for bureaus and Departmental offices to achieve the 20 percent 

target. Additional details on the Campaign to Cut Waste can be found at 

http://www.whitehouse.gov/the-press-office/2011/11/09/executive-order-promoting-efficientspending. 

ORGANIZATIONAL STRUCTURE

The BLM headquarters is located in Washington, D.C.; with the National Operations Center in 

Lakewood, CO; the National Training Center in Phoenix, AZ; and 12 State Offices and 46 

District Offices throughout the country. The Director reports to the Department of the Interior’s 

Assistant Secretary for Land and Minerals, and has direct line authority over the headquarters 

and State Offices. Assistant Directors provide policy, program management, and administrative 

support to the Director. State Directors guide policy and program implementation through their 

field structures and coordinate activities with partners. 

The BLM achieves its mission through 133 Field Offices. The BLM works with diverse partners, 

including other Federal agencies, State and local governments, tribes, international 

organizations, and private organizations and individuals. 

The BLM table of organization is shown on the next page, followed by tables showing the 

employee count by grade and full-time equivalent (FTE) usage. 
Bureau of Land Management 2013 

Chapter I – Executive Summary 

TABLE OF ORGANIZATION
Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 11 

EMPLOYEE COUNT BY GRADE

Total Employment * 

 Grade 2011

Actual

2012 

Estimate 

2013

Estimate

Executive Level V 1 1 1

Subtotal 1 1 1

Senior Level 2 2 2

Subtotal 2 2 2

SES 22 22 22

Subtotal 22 22 22

GS/GM - 15 102 101 99

GS/GM - 14 352 347 343

GS/GM - 13 955 942 931

GS -12 1,636 1,613 1,594

GS -11 2,623 2,587 2,556

GS -10 140 138 136

GS - 9 1,270 1,253 1,238

GS - 8 262 258 255

GS - 7 1,247 1,230 1,215

GS - 6 549 541 535

GS - 5 731 721 712

GS - 4 669 660 652

GS - 3 304 300 296

GS - 2 87 86 85

GS - 1 20 20 19

Subtotal 10,947 10,796 10,669

 

Other Pay Schedule Systems 508 501 495

Total Employment (actual/projected) 

at end of FY * 11,480 11,322 11,189

 * Number of actual employees, whether employees are full or part-time. 

FTE USAGE

Total FTE Usage (actual/projected) ** 10,635 10,489 10,365

** FTE (Full-Time Equivalent) means the total number of regular straight-time hours (i.e., not 

including overtime or holiday hours) worked by employees divided by the number of compensable 

days in a fiscal year. 

 
Bureau of Land Management 2013 Budget Justifications 

Chapter I – Executive Summary Page I - 12 

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Bureau of Land Management 2013 Budget Justifications

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

SUMMARY OF PROGRAM AND 

LEGISLATIVE CHANGES

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

changes and management efficiencies in the BLM’s 2013 budget. Funding increases and 

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

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

FY 2012 Enacted (current appropriation) 1,127,839

2013 Program Changes

America's Great Outdoors 6,281

• Cultural Resources Management: General Program Increase 1,081

• Recreation Resources Management: Off-Highway Vehicle Management Increase 1,100

• NLCS - National Monument and National Conservation Areas: General Program Increase 3,000

• NLCS - Wild and Scenic Rivers (Recreation Resources Management) 400

• NLCS - National Scenic and Historic Trails (Recreation Resources Management) 700

Land Acquisition - America's Great Outdoors 11,214

• Land Acquisition - LWCF: General Program Increase (Total Core project funding in FY 2013: 

$20,593,000) 1,624

• Land Acquisition - LWCF: Collaborative Landscape Acquisition Projects 5,984

• Land Acquisition - LWCF: Acquire Hunting and Fishing Access 2,500

• Land Acquisition - LWCF: Acquisition Management program increase 1,106

New Energy Frontier -19,934

• Oil & Gas Management General Program Increase including restoring decrease from 2012 8,016

• Oil & Gas Management: Leasing Reform 5,000

• Oil & Gas Management: Decrease base funding, offset by fees for Inspections and Enforcement -37,950

• Renewable Energy: Environmental Studies and Geothermal Energy Management Activities 5,000

Other Program Increases 31,018

• Wildlife Management: Sage Grouse Conservation Activities 15,000

• Wild Horse and Burro Management: Research & Development - Contraception/Population Control 2,000

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

• Resource Management Planning: High Priority Planning Efforts 4,366

• O&C Forest Management program: Increase Base Funding for Secretary’s W. Oregon Strategy 1,500

• Coal Management: Inspections and Enforcement 2,400

• Other Minerals Management: Inspections and Enforcement 2,000

• Bureauwide Fixed Costs: Realign Base Funding 3,252

Other Program Decreases -40,962

• Soil, Water, and Air Management: Decrease for Youth in the Great Outdoors -2,500

• Rangeland Management: General Program Decrease -15,789

• Public Domain Forest Management: General Program Decrease -3,453

• Alaska Conveyance: General Program Decrease -12,439

• Abandoned Mine Lands: General Program Decrease -2,000

• Construction: Program Elimination -3,570

• O&C Reforestation and Forest Development: General Program Decrease -1,211

Permanent Reprogrammings and Internal Transfers 0

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

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

• Land and Resources Information System to Information Technology subactivity [12,827]

• Information Systems Operations to Information Technology Management subactivity [14,673]

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

• O&C Operations and Annual Maintenance, merge subactivities [9,945]

Fixed Costs 11,879

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

Working Capital Fund (WCF); etc. 11,879

Total FY 2013 Budget Request 1,127,335
Bureau of Land Management 2013 Budget Justifications

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

AMERICA’S GREAT OUTDOORS

America’s Great Outdoors – Cultural Resources Management (+$1,081,000/+0 FTE) –

This increase will be used for the inventory, protection, and interpretation of places of special 

meaning to the diverse communities of the American West; conducting regional enthnogeographic landscapes assessments; engaging underrepresented groups in heritage resource

stewardship; repatriating to Native Americans human remains and cultural items held in BLM 

collections; and implementing the Paleontological Resources Preservation subtitle of the 

Omnibus Public Lands Act of 2009. 

America’s Great Outdoors – Recreation Resources Management (+$1,100,000/+2 FTE) –

In 2013, the Recreation Resources Management program will enhance off-highway vehicle 

management by completing more Travel Management Plans to address the demand for public 

services, ensure public health and safety, protect natural and cultural resources, and reduce 

conflicts in high-priority areas.

America’s Great Outdoors – National Monuments and National Conservation Areas

(+$3,000,000/+8 FTE) – The requested increase will strengthen BLM management of the 37 

separate units within the BLM's Monuments and NCAs program. The budget request will enable 

the BLM to provide enhanced resource protection and visitor safety, develop additional 

interpretive and environmental education products, and continue research, monitoring, and site 

maintenance projects.

NLCS – Wild & Scenic Rivers ($400K) – In 2013, the requested funding will target recent BLM 

efforts to improve management for Congressionally-designated Wild and Scenic Rivers (WSR)

as well as rivers found to be eligible and/or suitable for consideration as WSRs. The increased 

funding will be used to support additional monitoring, completing baseline inventories, and 

completing suitability analyses on eligible river segments. A portion of the increase will also 

assist those offices completing comprehensive river management plans.

NLCS - National Scenic & Historic Trails ($700K) – The requested funding will be used to 

support additional trail inventory, trail monitoring, cooperative agreements with trail partners, 

staff and volunteer training, and methods to avoid adverse impacts to National Trails.

LAND ACQUISITION – AMERICA’S GREAT OUTDOORS

Land Acquisition – LWCF General (Core) Program Increase (+$1,624,000/+0 FTE) – This 

funding increase will go towards high-priority acquisition efforts in BLM’s core land acquisition 

program. Total funding for land acquisition projects is $20.6 million.

Land Acquisition – Collaborative Landscape Acquisition Projects (+$5,984,000/+0 FTE) –

In 2013, the Department of the Interior proposes to combine a portion of the funding allocated 

from the LWCF to each of the bureaus towards a collaborative acquisition effort that will focus 

acquisition projects from each bureau in high-priority landscapes to leverage acquisition funding 

towards larger-scale goals of collaborative landscape management. These efforts were partially 

initiated in response to Congressional direction to the Department and the Forest Service to use 

LWCF land acquisition funds jointly and more strategically to protect contiguous landscapes and 

meet shared conservation goals. The BLM’s core acquisition program is aligned with the larger 
Bureau of Land Management 2013 Budget Justifications

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

Departmental collaborative initiative, as 97 percent of BLM’s acquisitions in its core program in 

2013 will occur in the Department-designated collaborative priority landscapes.

Land Acquisition – Acquire Hunting and Fishing Access (+$2,500,000/+0 FTE) – The 

access of hunters and anglers to the public lands is often frustrated by complicated, “checkerboard” land ownership patterns. Acquiring lands, or an interest in lands, for hunting and fishing 

access can alleviate some of these challenges and provide the public better access to valuable 

public recreation opportunities.

Land Acquisition – Acquisition Management General Program Increase (+$1,106,000/+0 

FTE) – Program increase will cover increased costs for new collaborative projects and 

initiatives. In addition, the BLM will focus on building program capacity through training and 

mentoring to provide skills into the future.

NEW ENERGY FRONTIER

Oil and Gas Management – General Program Increase (+$8,016,000/+49 FTE) – A $5.0 

million program increase restores the BLM’s leasing and oversight capacity to the 2011 enacted 

level, after a 2012 reduction in appropriations limited BLM’s ability to implement the leasing 

reforms it instituted in May 2010. This additional funding in 2013 will allow BLM to more fully 

achieve the goal of the leasing reforms and to effectively oversee energy permitting and 

development activities. In addition, the BLM is requesting an additional $3.0 million for large, 

regional-scale studies and environmental impact statements for conventional energy issues.

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

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

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

Federal oil and gas resources. The increased opportunity for public participation and a more 

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

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

and timely lease parcel environmental analysis.

Oil and Gas Management – Decrease Base Funding for Inspections/Shift Costs to Fees 

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

oil and gas inspections to industry fees, for a net savings of $37,950,000 in direct appropriations 

funding.

Renewable Energy Management (+$5,000,000/+37 FTE) – The 2013 budget request 

proposes an increase of $5,000,000 in new funds to conduct environmental studies and reviews 

in support of renewable energy projects and to enable BLM to continue to perform ongoing 

management of geothermal energy development now that mandatory funding for this purpose 

has expired. An additional $2.0 million in geothermal program funding in the Oil and Gas 

Management program is also transferred to the Renewable Energy Management program for 

this purpose. 
Bureau of Land Management 2013 Budget Justifications

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

OTHER PROGRAM INCREASES

Sage-grouse Conservation (+$15,000,000/+3 FTE) – The BLM proposes an increase of 

$15,000,000 in the Wildlife Management program to implement broad-scale sage-grouse 

planning and conservation activities. Specifically, this funding would be used for the following 

planning and conservation activities. (Note: Resource Management Plan amendments are 

funded by the benefiting subactivities while new plan starts are funded in the Resource 

Management Planning subactivity).

Regulatory Certainty for Future Land Use Planning ($10,000,000) – By the end of 2015, the 

BLM will put in place the necessary regulatory mechanisms through the land use planning 

process to ensure conservation of the greater sage-grouse before the 2015 deadline for FWS to 

make a final decision on whether or not to list the sage grouse. This will require the amendment 

or revision of over 98 land use plans, which cover the range of the greater sage-grouse, to 

designate priority greater sage-grouse habitat. Within these priority areas, BLM will set 

disturbance thresholds for energy and mineral development, develop and implement specific 

best management practices for livestock grazing, establish restrictions for OHV use and other 

recreational activities, and implement aggressive fire suppression and post fire restoration 

tactics.

Habitat Restoration and Improvement ($2,500,000) – BLM will conduct habitat restoration and 

improvement activities such as: pinyon/juniper mechanical treatments; invasive species control; 

mechanical sagebrush thinning; riparian restoration; sagebrush and other native plant seeding; 

installation of fuel breaks and other fuels management; and fence removal and marking to 

reduce mortality. The increase will help delineate areas of highest priority habitat across the 

range of the sage grouse.

Habitat Mapping, Assessment and Monitoring ($2,500,000) – In 2013, the BLM plans to 

continue the intensification of data collection across thirty populations of greater sage-grouse in 

the west to begin to understand the impacts of use authorizations across sage-grouse habitats.

In addition, GIS support and data management will be necessary in both the short and long term 

as the BLM transitions from intensive, large-scale planning to landscape-level and programspecific management to ensure the long-term sustainability of sage-grouse and the suite of 

species that are dependent on sagebrush for their survival.

Wild Horse and Burro Management – Research and Development for 

Contraception/Population Control (+$2,000,000/+0 FTE) – In 2013, the BLM will fund new 

research on contraception/ population control that may include topics such as studies on herd 

genetics, animal behavior and overall rangeland use as it relates to sterilization and other 

population growth suppression techniques. The goal of the research will be to develop 

additional methods to minimize wild horse population growth and maintain herd health. The 

increase, a result of the tough choices made in the 2013 Budget, invests in R&D to protect the 

health and environment of the Nation.

Klamath Basin Restoration (+500,000/+0 FTE) – The 2013 budget request includes an 

increase of $500,000 in the Soil, Water, and Air program for activities related to the Klamath 

Agreements authorized under existing law. Activities that could be undertaken inclulde any 

additional follow-up regarding the evaluation of whether or not removal of four dams on the 

Klamath River is in the public interest, any related mitigation, and subsequent ecologic 

restoration. The BLM is collaborating with other Federal agencies and stakeholders on this 

effort. Funds will support planning, technical analyses, and interagency coordination efforts.
Bureau of Land Management 2013 Budget Justifications

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

Resource Management Planning – High Priority Planning Efforts (+$4,366,000/+0 FTE) –

The BLM is requesting an increase of $4,366,000 to support high-priority planning efforts, 

including the initiation of several new plan revisions in 2013, as well as plan evaluations and 

implementation strategies. Resource management plans provide the basis for every BLM 

management action, and keeping them current in an era of rapidly changing resource use and 

demands, changing ecological conditions, continued population growth and increasing 

recreation use on the public lands is a high priority.

Secretary’s W. Oregon Strategy – General Program Increase (+$1,500,000/+0 FTE) – The 

Secretary’s Western Oregon Strategy focuses on increasing the volume of timber offered for 

sale; supporting key resource management planning objectives; increasing surveys of rare,

uncommon or endangered species; facilitating joint development and implementation of a 

revised recovery plan for the northern spotted owl; and providing for landscape-level timber sale 

project environmental analysis. The 2013 requested increase of $1,500,000 in the O&C Forest 

Management program will increase the volume of timber offered for sale in the fiscal year,

resulting in a 4-million-board-foot increase in the 2013 O&C volume offered, from 193 million in 

2012 to 197 million in 2013.

Coal Management – Inspections and Enforcement (+$2,400,000/+20 FTE) – The 2013 

budget request proposes an increase of $2,400,000 in appropriated funding to be utilized for 

inspection and enforcement of coal production on Federal and Indian lands. The increase will 

fund the program at approximately the 2011 enacted level. The BLM will continue efforts to 

institute cost recovery fees within this program, but the budget recognizes these fees may not 

be in place by the start of 2013. 

Other Mineral Materials Management – Inspections and Enforcement (+$2,000,000/+17

FTE) – The 2013 budget proposes an increase of $2,000,000 in appropriated funding for 

inspection and enforcement of other minerals activities on Federal and Indian lands. The 

requested increase will fund the program at approximately the 2011 enacted level. The BLM 

will continue efforts to institute cost recovery fees within this program, but the budget recognizes 

these fees may not be in place by the start of 2013.

Bureauwide Fixed Costs – Redirect Base Funding (+$3,252,000/+0 FTE) – This program 

increase will cover costs previously funded through program assessments. The requested 

increase will properly align these costs with the appropriate budget subactivity so that BLM will 

not have to continue to indirectly fund these costs through program assessments.

OTHER PROGRAM DECREASES

Youth Initiative Program Reduction (-$2,500,000/-0 FTE) – The 2013 budget request 

includes a reduction of $2,500,000 for the Youth Initiative in the Soil, Water, and Air 

Management program. This reduction will be targeted towards lower-priority work. The BLM will 

continue to support efforts to involve America’s youth in the management and enjoyment of 

America’s public lands.

Rangeland Management General Program Decrease (-$15,789,000/-120 FTE) – The 2013 

budget request for the Rangeland Management includes a program reduction of -$15,789,000 

for grazing administration-related activities. The impact of this reduction will be mitigated by a 
Bureau of Land Management 2013 Budget Justifications

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

proposed new grazing administrative processing fee (discussed in the Legislative and 

Administrative Changes section below).

Public Domain Forestry Management – General Program Decrease (-$3,453,000/-34 FTE) 

– BLM will reduce lower-priority activities and projects in the program and will also explore 

opportunities to enhance program efficiency.

Alaska Conveyance – General Program Decrease (-$12,439,000/-60 FTE) – The BLM is 

reducing base funding for the Alaska Conveyance and Lands program as part of an effort to 

reevaluate and streamline the conveyance process. Conveyance work has been ongoing since 

the 1960s and the 2004 Alaska Land Transfer Acceleration Act has allowed BLM to streamline 

the conveyance program and reduce program costs. The BLM is developing several 

procedures to enhance efficiency and continues to work to further streamline the program so 

that resources are focused on completing the goal of transferring title to 150 million acres the 

agency is required to convey. The BLM has already issued final or interim conveyance on most 

of these acres, and is developing a strategy to complete final transfers.

Abandoned Mine Lands – General Program Decrease (-$2,000,000/-0 FTE) – BLM will 

continue to fund the highest priority sites, as defined through its ranking process. Red Devil 

Mine (AK) reclamation activities remain a high priority. In FY 2013, the BLM plans to execute 

the next steps in the Comprehensive Environmental Response Compensation and Liability Act 

(CERCLA) process, address terrestrial biota data gaps in the Remedial Investigation (RI) and 

associated fish-tissue study, establish baseline data, survey the site boundaries, address future 

land use issues, and continue community outreach.

Construction Program Elimination (-$3,570,000/-8 FTE) – The Budget eliminates the 

Construction Appropriation account. Beginning in 2013, all construction, deferred maintenance 

and capital improvement projects on all BLM-managed lands will be funded in the MLR 

appropriation.

O&C Reforestation and Forest Redevelopment – General Program Decrease

(-$1,211,000/-6 FTE) – BLM will reduce lower priority forest vegetation inventories, reforestation 

treatments, stand maintenance and improvement treatments, monitoring, and inventory for the 

presence of noxious or invasive weed species. The reduction would not impact the Secretary’s 

Western Oregon Strategy.

INTERNAL TRANSFERS

Transfer Geothermal funds to Renewable Energy (+$2,000,000/+10 FTE) – The 2013 

budget proposes a transfer of $2,000,000/10 FTE from the Oil and Gas Management Program 

into the Renewable Energy Management Program. Leases for geothermal development on 

public lands were offered and administered with $2,000,000 of appropriated funding in the Oil 

and Gas Management Program. The management of geothermal energy activities is being

transferred from the oil and gas program to the Renewable Energy Management program now 

that the subactivity for Renewable Energy Management has been created.

Create New Information Technology Management Subactivity (+$27,500,000/+130 FTE) –

The 2013 budget request proposes transferring a total of $27,500,000 and 130 FTE from two 

subactivities—$12,827,000 and 85 FTE from Land and Resource Information Systems and 

$14,673,000 and 45 FTE from Information Systems Operations—to create a new Information 
Bureau of Land Management 2013 Budget Justifications

Chapter II – Summary of Program and Legislative Changes Page II - 7

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

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

Transformation initiative, and more efficiently manage its IT funding overall.

Transfer of O&C Deferred Maintenance to MLR Deferred Maintenance (+$1,039,000/+1

FTE) – Beginning in 2013 all construction, deferred maintenance and capital improvement 

projects on all BLM-managed lands will be funded in the MLR appropriation. This will simplify 

the allocations, and allow the highest priority deferred maintenance needs to be able to compete 

for funding from the same account.

Create New O&C Operations and Annual Maintenance Subactivity (+$9,945,000/+76 FTE) 

– The funding for this new subactivity comes from the consolidation of the O&C Operations and 

Annual Maintenance programs. This new subactivity will promote program management 

efficiencies and better recognize the overlap between the type of work that is funded and 

performed within these two programs.

Funding Shift from Land Resource Information Systems subactivity to Lands and Realty 

Management Subactivity (+$3,000,000/+0 FTE) – The budget transfers $3,000,000 from Land 

and Resource Information Systems to the Lands and Realty Management subactivity for the 

funding of lands and realty information systems. This business practice is consistent with the 

ownership, management, and funding of other BLM information systems by benefitting 

programs.

FIXED COSTS

Fixed Costs Increases (+$11,879,000/+0 FTE) – Requested fixed cost increases include costs 

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

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

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

LEGISLATIVE AND ADMINISTRATIVE CHANGES

Grazing Administrative Processing Fee – The Budget includes appropriations language for a 

three-year pilot project to allow BLM to recover some of the costs of issuing grazing 

permits/leases on BLM lands. BLM would charge a fee of $1 per Animal Unit Month, which 

would be collected along with current grazing fees. The budget estimates the fee will generate 

$6.5 million in 2013, and that it will assist the BLM in processing pending applications for 

grazing permit renewals. During the period of the pilot, BLM would work through the process of 

promulgating regulations for the continuation of the grazing administrative fee as a cost 

recovery fee after the pilot expires. 

Oil and Gas Inspection Fee – The 2013 budget proposes to shift a significant share of the cost 

of the inspections activity to industry fees, for a savings of $37,950,000 in requested 

appropriations. The estimated collections generated from the proposed inspection fees will total 

$47,950,000, fully offsetting the proposed reduction in appropriated funding and providing for a 

net increase of $10.0 million in funds available for this critical BLM management responsibility. 

The increased funding is aimed at correcting deficiencies identified by the Government 

Accountability Office in its February 2011 report, which designated Federal management of oil 
Bureau of Land Management 2013 Budget Justifications

Chapter II – Summary of Program and Legislative Changes Page II - 8

and gas resources, including production and revenue collection, as high risk. The $10.0 million 

increase will help BLM achieve the high-priority goal of increasing the completion of inspections 

of Federal and Indian high-risk oil and gas cases by nine percent over 2011 levels. The BLM will 

also complete more environmental inspections to ensure environmental requirements are being

followed in all phases of development. The BLM anticipates adding approximately 46 FTE with 

this increased funding capacity.

Proposed appropriations language to implement the fee is included in the General Provisions for

the Department of the Interior.

Fee on Non-producing Oil and Gas Leases – The Administration will submit a legislative 

proposal to encourage energy production on lands and waters leased for development. A $4.00-

per-acre fee on non-producing Federal leases on lands and waters would provide a financial 

incentive for oil and gas companies to either get their leases into production or relinquish them 

so that the tracts can be leased to, and developed by, new parties. The proposed $4.00-peracre fee would apply to all new leases and would be indexed annually. In October 2008, the 

Government Accountability Office issued a report critical of past efforts by Interior to ensure that 

companies diligently develop their Federal leases. Although the report focused on administrative 

actions that the Department could undertake, this proposal requires legislative action. This 

proposal is similar to other non-producing fee proposals considered by the Congress in the last 

several years. The fee is projected to generate revenues to the U.S. Treasury of $13.0 million in 

2013 and $783.0 million over ten years.

Geothermal Energy Receipts – The Administration proposes to repeal Section 224(b) of the 

Energy Policy Act of 2005. Prior to passage of this legislation, geothermal revenues were split 

between the Federal government and States, with 50 percent directed to States, and 50 percent 

to the Treasury. The Energy Policy Act of 2005 changed this distribution beginning in 2006 to 

direct 50 percent to States, 25 percent to counties, and for a period of five years, 25 percent to a 

new BLM Geothermal Steam Act Implementation Fund. The allocations to the new BLM 

geothermal fund were discontinued a year early through a provision in the 2010 Interior 

Appropriations Act. The repeal of Section 224(b) will permanently discontinue payments to 

counties and restore the disposition of Federal geothermal leasing revenues to the historical 

formula of 50 percent to the States and 50 percent to the Treasury. This results in estimated 

savings of $4.0 million in 2013 and $50.0 million over ten years.

Repeal Permit Processing Improvement Fund and Prohibition on Oil and Gas Cost 

Recovery – The Administration proposes to repeal portions of Section 365 of the Energy Policy 

Act, beginning in 2013. Section 365 diverted mineral leasing receipts from the U.S. Treasury to 

a BLM Permit Processing Improvement Fund and also prohibited BLM from establishing cost 

recovery fees for processing applications for oil and gas permits to drill. Congress has 

implemented permit fees through appropriations language for the last several years and the 

2013 budget proposes to continue this practice. Starting in 2013, upon elimination of the fee 

prohibition, BLM will promulgate regulations to establish fees for applications for permits to drill 

administratively. In combination with normal discretionary appropriations, these cost recovery 

fees will then replace the applications for permit to drill fees set annually through appropriations 

language and the mandatory permit fund, which would also be repealed starting in 2014. 

Savings from terminating this mandatory funding are estimated at $18.0 million in 2014 and 

$36.0 million over two years.

Onshore Oil and Gas Royalty Revenues Changes – The Administration believes that 

American taxpayers should get a fair return on the development of energy resources on their 
Bureau of Land Management 2013 Budget Justifications

Chapter II – Summary of Program and Legislative Changes Page II - 9

public lands. A 2008 Government Accountability Office report suggests that taxpayers could be 

getting a better return from Federal oil and gas resources, at least in some areas. The BLM is 

evaluating options for changes to the royalty rate and expects to publish a draft regulation in the 

near future. The royalty rate changes are estimated to increase revenue collections by about 

$1.25 billion over 10 years, roughly half of which would be shared with the States under current 

law.

Mining Reclamation Fee – The Budget includes a legislative proposal to address abandoned 

hardrock mines across the country through a new AML fee on hardrock production. Just as the 

coal industry is held responsible for abandoned coal sites, the Administration proposes to hold 

the hardrock mining industry responsible for abandoned hardrock mines. The legislative 

proposal will levy an AML fee on all uranium and metallic mines on both public and private

lands. The proposed fee will be charged per volume of material displaced after January 1, 2013. 

The receipts will be distributed by BLM through a competitive grant program to restore the most 

hazardous hardrock AML sites on both public and private land using an advisory council 

comprising representatives of Federal agencies, States, Tribes, and nongovernment 

organizations. The advisory council will recommend objective criteria to rank AML projects to 

allocate funds for remediation to the sites with the most urgent environmental and safety 

hazards. The proposed hardrock AML fee and reclamation program would operate in parallel to 

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

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

created the problems. This proposal is estimated to increase net revenues to Treasury by $500 

million over 10 years.

Reform Hardrock Mining on Federal Lands – The Budget includes a proposal to institute a 

leasing process under the Mineral Leasing Act of 1920 for certain minerals (gold, silver, lead, 

zinc, copper, uranium, and molybdenum) currently covered by the General Mining Law of 1872. 

After enactment, mining for these metals on Federal lands would be governed by the new 

leasing process and subject to annual rental payments and a royalty of not less than 5 percent 

of gross proceeds. Half of the receipts would be distributed to the States in which the leases are 

located and the remaining half would be deposited in the Treasury. Pre-existing mining claims 

would be exempt from the change to a leasing system, but would be subject to increases in the 

annual maintenance fees under the General Mining Law of 1872. The Budget proposes to 

increase the annual maintenance fee and to eliminate the fee exemption for miners holding 10 

or fewer mining claims. These changes would discourage speculators from holding claims that 

they do not intend to develop. Holders of pre-existing mining claims for these minerals could 

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

account for, and disburse the hardrock royalty receipts. The legislation would provide a 

mechanism for royalty relief under certain situations, in the manner currently set out in the MLA. 

This proposal is estimated to generate $80 million in net revenues to Treasury over 10 years.

Federal Land Transaction Facilitation Act (FLTFA) – The Administration proposes to 

reauthorize FLTFA, which expired July 25, 2011, and allow lands identified as suitable for 

disposal in recent land use plans to be sold using the Act’s authority. FLTFA’s sales revenues 

would continue to be used to fund the acquisition of environmentally sensitive lands and the 

administrative costs associated with conducting sales. This proposal is estimated to generate 

$28 million in savings to Treasury over 10 years.
Bureau of Land Management 2013 Budget Justifications

Chapter II – Summary of Program and Legislative Changes Page II - 10

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Bureau of Land Management 2013 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 BLM contributes toward DOI’s success in meeting its priority goals are:

• Renewable Energy,

• Climate Change Adaptation,

• Youth in the Great Outdoors, and

• Improved Management of Federal Oil & Gas Resources.

The BLM programs affected include: Soil, Water, and Air Management; Range Management; 

Forestry; Riparian Management; Wildlife and Fisheries Management; Threatened and 

Endangered Species Management; Wild Horse and Burro Management; Recreation 

Management; National Monuments and Conservation Areas; Wilderness Management; Oil and 

Gas Management; and Renewable Energy Management.

Renewable Energy – By September 30, 2013, the Department of the Interior will increase the 

approved capacity authorized for renewable (solar, wind, and geothermal) energy resources 

affecting Department of the Interior managed lands, while ensuring full environmental review, by 

at least 11,000 megawatts.

 Impact Statement: Increase the approved capacity for production of energy from 

domestic renewable resources to support a growing economy and protect our 

national interests while reducing our dependence on foreign oil and climate-changing 

greenhouse-gas emissions.

BLM Contribution: The BLM’s renewable energy program contributes to the Secretary’s New 

Energy Frontier Initiative. Public lands managed by the BLM in the western United States have 

high potential for wind, solar, and geothermal energy production. Public lands also provide 

crucial transmission corridors for renewable energy generated on non-Federal lands. The BLM 

has identified approximately 20 million acres with wind energy potential in eleven western 

states, 22 million acres with solar energy potential in six southwestern states, and 149 million 

acres with geothermal potential in several western states and Alaska. The 2013 President’s 

Budget requests $26.8 million for renewable energy, a $7.0 million program increase over the 

2012 enacted budget. This includes a proposal to move $2.0 million in geothermal program 

funding from the Oil and Gas subactivity into the Renewable Energy subactivity. In addition, a 

$5.0 million increase is requested to prepare regional planning studies and environmental 

reviews of potential wind energy zones in two states and to replace mandatory funding that is no 

longer being provided to the geothermal program.

Implementation Strategy: In 2012 the BLM created a new subactivity for renewable energy 

development, and added two new program elements to track preparation of competitive 
2013 Budget Justifications Bureau of Land Management

Page III - 2 Chapter III – Performance Overview

renewable energy actions and for processing renewable energy actions other than 

authorizations to assist with program management and oversight.

The BLM will finalize the solar energy development Programmatic Environmental Impact 

Statement in the summer of 2012. It will include detailed environmental analyses of seventeen

solar energy zones covering more than 400 square miles of public land for large-scale solar 

energy development. Subsequent implementation actions will identify leasing and development 

opportunities for solar energy projects within these designated solar energy zones. Making 

these lands available for BLM leasing proposals will provide for the best siting locations for 

environmentally-sound solar energy development projects. The BLM will initiate this leasing 

program through a nomination and request for proposal process, ultimately ending in a 

competitive leasing program to accelerate the process of offering public lands for solar energy 

development. The BLM is also working on a rulemaking effort to establish the regulatory 

framework for a solar and wind energy leasing program under current FLPMA authority.

The funding requested in the 2013 President’s Budget for planning studies of regional wind 

energy zones will update the previous analysis in the Wind Energy Programmatic EIS 

completed in 2005 to address a greater level of wind energy development which will further 

streamline the environmental review of site-specific wind projects. It will also include analysis of 

additional planned transmission development.

Performance Metrics: The Department is presently employing a set of internal measures and 

milestones to monitor and track achievement of the priority goals. Progress in these areas is 

reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to 

overcome barriers to the achievement of the priority goal. The BLM has identified the following 

existing Strategic Plan measure that relates to this priority goal: “Number of megawatts of 

approved capacity authorized on public land for renewable energy development while ensuring 

full environmental review.” This Strategic Plan measure cumulatively includes all megawatts of 

capacity on Federal lands which were authorized prior to the development of the Secretary’s 

Priority Goal, in contrast to the Priority Goal which tracks megawatts authorized since the start 

of fiscal year 2010. Through the end of FY 2011, the BLM issued decisions on solar, wind, and 

geothermal energy development project proposals with a combined capacity of more than 6,500

megawatts. Projects approved in 2012 and 2013 are projected to provide sufficient additional 

capacity to reach the goal of 11,000 megawatts of capacity in 2013.

Climate Change Adaptation – By September 30, 2013, for 50 percent of the Nation, the 

Department of Interior will identify resources that are particularly vulnerable to climate change, 

and implement coordinated adaptation response actions.

 Impact statement: Identify vulnerable resources and implement coordinated 

adaptation strategies to mitigate risks of changing climate.

BLM Contribution: The BLM has incorporated this priority goal into its Cooperative Landscape 

Conservation Initiative. To address the landscape-scale changes associated with climate 

change, the BLM is adopting a multi-level approach to management. This approach involves 

assessing conditions and potential risks at a landscape scale; developing management 

strategies to help geographically focus development, conservation, and adaptation activities; 

implementing these strategies through changes in land use allocations, development of new 

best management practices, and on-the-ground treatments and projects; and systematically 

monitoring to determine the effectiveness of management actions. The development and 

implementation of many conservation and adaptation activities will be coordinated with Climate 

Science Centers (CSCs) and the Landscape Conservation Cooperatives (LCCs). These 
Bureau of Land Management 2013 Budget Justifications

Chapter III – Performance Overview Page III - 3

strategies will be focused initially on those eco-regions with significant BLM management 

responsibilities, energy development potential, and climate change vulnerabilities. The 2013 

BLM budget request includes $17.5 million for the Cooperative Landscape Conservation 

initiative, equal to 2012 enacted.

Implementation Strategy: In 2013, the BLM will begin to implement adaptation strategies in the 

seven eco-regions in which Rapid Eco-regional Assessments (REAs) will be completed in FY 

2012; complete the three REAs initiated in FY 2011 as well as begin to develop adaptation 

strategies for these eco-regions; and continue with the two REAs scheduled to be initiated in FY 

2012. The BLM also will initiate one new REA in FY 2013, depending in part on discussions with 

the LCCs. These REAs will help create systematic baseline information and help inform the 

development of adaptive management strategies for eight LCCs: Great Basin, Desert, Southern 

Rockies, Great Northern, Plains and Prairie Potholes, Great Plains, Western Alaska, and NW 

Interior Forests (AK). They will also help identify critical indicators for systematically monitoring 

the effectiveness of management activities in these LCCs.

Performance Metrics: The Department is presently employing a set of internal measures and 

milestones to monitor and track achievement of the priority goals. Progress in these areas will 

be reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to 

overcome barriers to the achievement of the priority goal.

Youth in the Great Outdoors – By September 30, 2013, the Department of the Interior will

maintain the increased level of employment of individuals between the ages of 15 to 25 that was 

achieved in FY 2010 (35 percent increase in total youth employment over 2009) to support the 

Department’s mission of natural and cultural resource management.

 Impact Statement: Build the next generation of conservation and community leaders 

by supporting youth employment at the Department of the Interior.

BLM Contribution: The BLM has incorporated this priority goal into its Youth in the Great 

Outdoors Initiative. The Bureau will continue to focus on providing a continuum of experiences 

through its youth education, engagement, and employment programs. Special consideration is 

given to those programs that involve hiring young people ages 15 to 25 through various student 

employment programs, youth corps, and other youth partnership organizations. BLM is also 

emphasizing hiring youth from diverse backgrounds. Programs for school age youth such as 

Hands on the Land and conservation corps and internship programs for high school and older 

youth expose young people to natural and cultural resources and to career pathways in those 

fields. The 2013 BLM budget request includes $6.1 million for the Youth in the Great Outdoors 

initiative, a reduction of $2.5 million below the 2012 enacted level.

Implementation Strategy: In 2013, 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. BLM will work with partners to support projects that 

leverage private sector contributions to engage and employ youth in conservation activities.

Performance Metrics: The Department is presently employing a set of internal measures and 

milestones to monitor and track achievement of the priority goals. Progress in these areas will 

be reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to 

overcome barriers to the achievement of the priority goal.
2013 Budget Justifications Bureau of Land Management

Page III - 4 Chapter III – Performance Overview

Improved Management of Federal Oil and Gas Resources – By September 30, 2013, the 

BLM will increase the completion of inspections of Federal and Indian high-risk oil and gas 

cases by 9 percent over FY 2011 levels, which is equivalent to covering as much as 95 percent

of the potential high-risk cases.

 Impact Statement: Improve production accountability, safety, and environmental 

protection of oil and gas operations through increased inspection of high-risk oil 

and gas production cases.

BLM Contribution: The inspection of high-risk-producing oil and gas cases ensures that 

hydrocarbon production on Federally-managed lands is properly accounted for and results in 

accurate royalty payments to the public and Indian owners of the minerals. Oil and gas 

production on Federally-supervised lands represents a significant part of the Nation’s 

hydrocarbon production. Operating regulations at 43 CFR 3161.3 (a) require the BLM to inspect 

all leases which produce high volumes of oil or natural gas and those leases that have a history 

of non-compliance at least once a year. By focusing on high-risk-producing cases, rather than 

randomly selecting producing cases for inspection, the BLM’s resources are more efficiently 

used. The high-risk cases account for about 13 percent of the total cases but account for over 

60 percent of the oil and gas produced on Federal and Indian mineral estates. This effort is a 

component of addressing the deficiencies identified in the GAO High Risk report including 

ensuring data on production verification and royalties are consistent and reliable, meeting goals 

for oil and gas verification inspections, and ensuring that informal employee training is 

supported by formalized training courses offered on a consistent basis. The 2013 President’s 

Budget proposes to shift a significant share of the cost of the inspections activity to industry 

fees. The estimated collections generated from the proposed inspections fees will total $47.95

million. This will allow for a reduction of $37.95 million in requested appropriations and will 

provide an additional $10.0 million toward inspections. The 2013 budget also proposes a 

programmatic increase to enable the BLM to effectively implement its leasing reforms.

Implementation Strategy: High-risk cases are determined by seven risk factors, four generated 

by the BLM and three derived from the Office of Natural Resources Revenue risk model. The 

four BLM factors are: production rating; number of missing Oil and Gas Operations Reports 

(OGOR); non-compliance rating; and, last production inspection date rating. The Field Offices 

inspect the cases throughout the year which are then entered into the Automated Fluid Minerals 

Support System (AFMSS). The Washington Office then runs reports from AFMSS showing the 

number of high-risk-production inspections completed. The number of high-risk-production 

cases is determined, by the individual field offices, based on the Bureau’s risk-based inspection 

strategy. The milestones for each quarter for FY 2012 are 5 percent at the end of first quarter, 

15 percent at the end of second quarter, 40 percent at the end of third quarter and 85 percent at 

the end of the year. The milestone for FY 2013 will be 95 percent or above at the end of the 

year.

Performance Metrics: The BLM is presently employing the following milestones to monitor and 

track achievement of this priority goal: 1) Revising Onshore Oil and Gas Orders 3, 4 and 5

which cover how oil and gas is measured and stored in a secure facility to prevent theft and 

mishandling of production; 2) Revising regulations to increase the royalty rate on oil and gas; 

and, 3) Reinstating training for managers on oil and gas operations. Progress in these areas is 

reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to 

overcome barriers to the achievement of the priority goal. 
Bureau of Land Management 2013 Budget Justifications

Chapter III – Performance Overview Page III - 5

BLM’S CONTRIBUTION TO THE DOI STRATEGIC PLAN

The FY 2011-2016 DOI Strategic Plan, in compliance with the principles of the GPRA 

Modernization Act of 2010, provides a collection of mission objectives, goals, strategies and 

corresponding metrics that provide an integrated and focused approach for tracking 

performance across a wide range of DOI programs. While the DOI Strategic Plan for FY 2011 –

FY 2016 is the foundational structure for the description of program performance measurement 

and planning for the FY 2013 President’s Budget, further details for achieving the Strategic 

Plan’s goals are presented in the DOI Annual Performance Plan and Report (APP&R). Bureauand program-specific plans for FY 2013 are fully consistent with the goals, outcomes, and 

measures described in the FY 2011-2016 version of the DOI Strategic Plan and related 

implementation information in the Annual Performance Plan and Report (APP&R).

The BLM’s Goal Performance Table follows. More information about each performance 

measure is included in the subactivity section where the funding for the measure is provided.
2013 Budget Justifications Bureau of Land Management

Page III - 6 Chapter III – Performance Overview

GOAL PERFORMANCE TABLE

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 1: Provide Natural and Cultural Resources Protection and Experiences

Goal 1: Protect America's Landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife refuges, 

and BLM lands. 

Percent of DOI 

stream/shoreline miles that 

have achieved desired 

conditions where condition is 

known and as specified in 

management plans. (SP) 

C

90% 

128,310/ 

143,290

91% 

130,146/ 

143,290

85% 

131,976/ 

154,976

85% 

131,976/ 

154,976

85% 

132,466/ 

154,976

85% 

131,976/ 

154,976

86%

133,000

154,976

+1%

91%

141,000

155,000

Contributing Programs: Land Resources; Wildlife and Fisheries Management; O&C Resources; Contributed Funds; Challenge Cost Share; and Other Subactivities.

Percent of DOI acres that 

have achieved desired 

conditions where condition is 

known and as specified in 

management plans. (SP)

C

57% 

145,082,806/ 

256M

58%

147,325,000/

253M

59% 

149,206,024/ 

253M

59% 

152,192,000/ 

253M

63% 

155,970,340/ 

248M

66% 

163,846,740/ 

248M

69% 

170,652,000/ 

248M

+3%

72% 

179,086,000/ 

248M

Comments: The denominator change in 2011 from 253M to 248M is the result of land conveyance, exchange and disposal. The details of these lands actions are listed in the 

Public Land Statistics. 

Contributing programs: Land Resources; Wildlife Management; O&C Resources Management; Contributed Funds/Reimbursables; and Other Subactivities. 
Bureau of Land Management 2013 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

Type

2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Percent of baseline acres 

infested with invasive plant 

species that are controlled. 

(SP)

C

1.2% 

436,698/ 

35,000,000

1.2%

411,388/

35,762,000

1.21% 

433,905 / 

35,762,000

1.2%

411,888/

35,762,000

0.99% 

333,177/ 

35,762,000

0.58%

205,000/

35,762,000

0.58%

205,000/

35,762,000

0%

0.83% 

300,000/ 

35,762,000

Contributing Programs: Land Resources; Burned Area Rehabilitation; O&C Resources Management; Challenge Cost Share; and Other Subactivities.

Percent of invasive animal 

species populations that are 

controlled. (SP)

A New

in 2011

New

in 2011

New

in 2011

Baseline to 

be 

established

8% 

15/182

8% 

15/182

8% 

15/198 0% 8% 15/198

Number of DOI riparian 

(stream/shoreline) miles 

restored to the condition 

specified in management 

plans. (SP)

A 767 779 1,734 788 749 788 749 -39 788

Comment: In 2013 the BLM will be placing a greater emphasis on assessment and monitoring data collection in order to better guide out-year restoration. This will cause a 

reduction in restoration projects accomplished and miles restored.

Contributing Programs: O&C Resources Management; Land Resources; Wildlife Management; Reimbursables; Challenge Cost Share and Contributed Funds; and Range 

Improvements.

Number of DOI acres restored 

to the condition specified in 

management plans. (SP)

A 1,000,156 950,157 1,136,759 950,000 848,477 485,119 511,000 +25,881 700,000

Comment: In 2012, BLM will increase its permit renewal activities, which will result in a decrease in the number of acres restored. In 2013 $2.5 million will be used for Habitat 

Restoration and Improvement. The increased funding received will restore and improve key greater sage-grouse habitat for the benefit of sage grouse populations.

Contributing Programs: Land Resources; Wildlife Management; O&C Resources Management; Range Improvements; Forest Ecosystems; SNPLMA Conservation; Resource 

Management Planning; Forestry Pipeline Restoration; NM&NCA's; Other Reimbursables. 
2013 Budget Justifications Bureau of Land Management

Page III - 8 Chapter III – Performance Overview

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Percent of Wild Horse and 

Burro Herd Management 

Areas (HMAs) achieving 

appropriate management 

levels. (BUR)

A 55%

109/ 199

44%

78/ 180

41%

74/ 179

39% 

69/179

39% 

69/179

39% 

69/179

31% 

55/179 -8% 31% 55/179

Comment: In 2013, the BLM Strategy aims to maintain the existing number of wild horses and burros on the range. The BLM will continue removals at the reduced level of 7,600 

animals and increase applications of population growth suppression methods. This methodology will likely decrease the number of HMAs at AML, because the reduced level of 

removals will be conducted in priority HMAs that far exceed AML. In addition, population growth suppression methods should slow population rates of increase but will not decrease 

the number of animals on the range. Program activities that will contribute to the measure include expenditures for research to develop longer acting fertility control agents, 

evaluation of other population growth suppression methods, and new research that may be recommended by the National Academy of Sciences.

Percent of Resource 

Management Plans completed 

within four years of start. 

(BUR)

A 49% 

29/ 59

44% 

28 / 63

39% 

28/ 71

51% 

35/ 69

41% 

28/ 69

48% 

36/ 75

46% 

43/93 -2% 46% 43/93

Comment: The ratio represents the total number of Resource Management Plans (RMPs) completed in 4 years divided by the total number of RMPs completed, so the denominator 

increases over time. The denominator decreased from 2010 to 2011 a result of subtracting two completed RMPs due to litigation.

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, including States. 

Number of threatened and 

endangered species recovery 

activities implemented. (SP) 

A Newin 2011 Newin 2011 Newin 2011 Newin 2011 1,328 1,500 1,500 0 1,500

Comment: In 2011, the number of activity plans was reported instead of the number of activities. What should have been reported was the number of activities implemented, which 

was 1328.

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 historic structures 

on DOI inventory in good 

condition (SP)

C 50% 

182/ 362

49% 

187/ 380

49% 

192/ 390

49% 

197/ 400

48% 

193/ 400

48% 

195/ 407

48% 

196/ 408 0% 50%205/ 410
Bureau of Land Management 2013 Budget Justifications

Chapter III – Performance Overview Page III - 9

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Percent of collections on DOI 

inventory in good condition. 

(SP) 

C 100% 

3 / 3

100% 

3 / 3

100% 

3/3

77% 

109 / 141

83% 

118 / 142

83% 

120/ 145

83% 

122/ 147 0% 85% 136 / 160

Comment: Beginning in 2011, the number of BLM collections reported includes collections managed internally by BLM facilities and collections managed by 

museums and universities through partnerships. This change in reporting is consistent with the definition of the Strategic Plan measure which includes both 

internally and externally managed collections. The overall percentage is directly affected by the number of collections added to the inventory each year. 

Percent of archaeological 

sites on DOI inventory in good 

condition (SP)

C

83% 

47,537/ 

57,273

83%

48,980/

58,837

84% 

52,620/ 

62,987

83% 

51,123/ 

61,837

84% 

60,521 

71,644

85% 

60,897/ 

71,644

85% 

61,200/ 

72,000

0%

85% 

68,000/

80,000 

Goal 3: Provide Recreation and Visitor Experience

Strategy 1: Enhance the enjoyment and appreciation of our natural and cultural heritage by creating opportunities for play, enlightenment, and inspiration.

Percent of visitors satisfied 

with the quality of their 

experience. (SP)

A 92% 

92/ 100

94% 

94/ 100

94% 

94/ 100

92% 

92/ 100

95% 

95/ 100

92% 

92/100

92% 

92/100 0% 92% 92/100

Comment: Customer surveys have a variance of +/- 6%. 

Percent satisfaction among 

visitors served by facilitated 

programs. (SP) 

A 94% 

94/ 100

96% 

96/ 100

98% 

98 / 100

94% 

94/ 100

90% 

90/ 100

94% 

94/100

94% 

94/100 0% 94% 94/ 100

Comment: The data for this measure is compiled using the BLM Visitor Survey report prepared by the University of Idaho. Customer surveys have a variance of +/- 6%. 
2013 Budget Justifications Bureau of Land Management

Page III - 10 Chapter III – Performance Overview

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 1: Secure America's Energy Resources

Strategy 1: Ensure environmental compliance and the safety of energy development.

Percent of oil and gas acres 

reclaimed to appropriate final 

land condition. (SP) 

A

25% 

2,580/ 

10,258

25%

1,678/

6,751

25% 

1,713 / 

6,801

25%

2,525/

10,062

23% 

2,327/ 

10,062

25%

1,600/

6,412

25%

1,600/

6,412

0%

25%

2,482/

9,905

Percent of producing fluid 

mineral cases that have a 

completed inspection during 

the year. (SP)

A NewIn 2011 NewIn 2011 NewIn 2011 NewIn 2011

36% 

9,869/ 

27,419

44%

12,116/

27,719

44%

12,116/

27,719

0%

44%

12,116/

27,719

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)

C 1,398 1,526 1,610 10,526 7,083 11,526 12,526 +1,000 15,526

Comment: BLM had previously incorrectly reported prior-year totals for authorized MW of capacity on Federal lands. Prior year data was adjusted to include all known projects of 

installed and approved capacity on public lands through the end of FY09. In 2013, the Strategic Plan measure definition will be modified to include connected action projects. The 

Strategic Plan measure includes all MW of capacity on Federal lands which were authorized prior to the development of the Secretary’s Priority Goal. 
Bureau of Land Management 2013 Budget Justifications

Chapter III – Performance Overview Page III - 11

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Strategy 3: Manage Conventional Energy Development

Percent of coal lease 

applications processed. (SP) A 10% 4/40

5%

2/38

5% 

2/39

19% 

8/42

7% 

3/42

15% 

6/40

15% 

6/40 0% 13% 5/40

Comment: Coal lease application environmental analyses have expanded to consider coal bed methane and down-stream gas production from federal coal uses resulting in lease 

sale delays due to litigation.

Percent of pending fluid 

mineral Applications for 

Permit to Drill (APDs) which 

are processed. (SP)

A

59%

7,846/

13,265

50%

5,306/

10,676

54%

5,237/

9,621

64%

7,250/

11,384

56% 

5,200/ 

9,308

60%

5,500/

9,134

60% 

5,500/ 

9,134

0%

65% 

5,950/ 

9,134

Comment: This is a new Strategic Plan Measure; however, the historical data for this measure is available and is shown above.

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 1: Manage Timber and Forest Products Resources

Percent of allowable sale 

quantity timber offered for sale 

consistent with applicable 

resource management plans. 

(SP)

A 86% 

174/ 203

31%155/ 

502

86% 

174/203

70% 

142/ 203

70% 

143/ 203

70% 

140/ 203

72% 

146/ 203 +2% 74% 150/ 203

Comment: Cost per million board foot (MMBF) is based on the total program cost divided by the annual target.

Volume of wood products 

offered consistent with 

applicable management plans 

(Public Domain & O&C) (SP)

A 292 270 296 220 240 223 209 -14 239

Comment: The net reduction of 14 MMBF in 2013 planned performance is due to a reduction of 18 MMBF in the public domain and an increase of 4 MMBF in O&C (Public domain 

12 MMBF, O&C 197 MMBF).

Contributing Programs: O&C Forest Management; Forestry Management
2013 Budget Justifications Bureau of Land Management

Page III - 12 Chapter III – Performance Overview

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Volume of wood products 

offered (biomass for energy) 

consistent with applicable 

management plans. (BUR)

A 109,345 103,300 355,000 100,000 119,000 110,000 55,000 -55,000 120,000 

Contributing Programs: Forestry Management; Hazardous fuels; O&C Resources Management; and Forest Ecosystem Health. 

Strategy 2: Provide for Sustainable Forage and Grazing

Percent of grazing permits 

and leases processed as 

planned consistent with 

applicable resource 

management plans. (SP)

A

84% 

2177/ 

2,600

44%

2,554/

5,835

30% 

1,933 / 

6,484

31% 

1,933/ 

6,312

36% 

1,945/ 

5,383

36% 

2,396/ 

6,685

33% 

2,100/ 

6,300

-3%

55% 

2,500/ 

4,500

Comment: Increased funding in the 2012 enacted budget will result in a greater number of permit renewals. In 2012, the enacted budget will result in a greater number of permit 

renewals. Subsequently, in 2013, the number permit renewals will sustain a moderate increase in comparison to the 2011 enacted level with the addition of the fee proposal.

Strategy 3: Manage Non-Energy Mineral Development

Percent of non-energy mineral 

exploration and development 

requests processed. (SP)

A New

in 2011

New

in 2011

New

in 2011

Baseline to 

be 

established

5% 

27/572

10% 

50/475

10% 

50/475 0% 10% 50/475

Number of mined acres 

reclaimed to appropriate land 

condition and water quality 

standards. (SP) 

A 7,375 8,315 3,556 3,500 1,317 3,500 3,500 0 3,500

Comment: When the demand for mineral materials, locatable minerals and non-energy leasable minerals is high, fewer mined sites are closed and reclaimed. Out-year targets 

have been adjusted to reflect this demand. Reclamation is performed by the users.

Percent of Notices and Plans 

of Operations inspected. 

(BUR)

A 55% 

1,321 / 2,385

46% 

1,347 / 2,924

66% 

2,049/3,090

47% 

1,450/3,050

56%

1,734/3,092

47% 

1,450/ 3,050

50% 

1,525/ 3,050 +3% 50% 1,525/ 3,050
Bureau of Land Management 2013 Budget Justifications

Chapter III – Performance Overview Page III - 13

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Number of Mineral Material 

inspections and production 

verifications. (BUR)

A $3,250 3160 3112 2,889 3,319 3,100 3,100 0 3,100 

Number of Non-energy Solid 

Mineral inspections and 

production verifications. 

(BUR)

A $1,435 1240 1220 1,178 1,391 1,200 1,200 0 1,200
2013 Budget Justifications Bureau of Land Management

Page III - 14 Chapter III – Performance Overview

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Bureau of Land Management 2013 Budget Justifications

Chapter IV – Initiatives Page IV - 1

INITIATIVES

The following is a highlight of the major DOI initiatives and focal areas in which BLM plays a key 

role, including America’s Great Outdoors, the New Energy Frontier, and Greater Sage-Grouse 

Conservation.

AMERICA’S GREAT OUTDOORS

On April 16, 2010, President Obama announced the America’s Great Outdoors (AGO) initiative, 

launching the development of a 21st century conservation and recreation agenda. The result is 

a call for a grassroots approach to protecting our lands and waters and connecting all 

Americans to their natural and cultural heritage. The AGO initiative seeks to empower all 

Americans to share in the responsibility to conserve, restore, and provide better access to our 

lands and waters in order to leave a healthy, vibrant outdoor legacy for generations to come. 

Funding for the initiative is broadly defined to capture programs that are key to attaining 

conservation goals. That includes funding to operate and maintain our public lands; expand and 

improve recreational opportunities at the state and local level; protect cultural resources; and 

conserve and restore land, water, and native species.

According to the US Census Bureau, the population of the western United States has increased 

156 percent since 1960, and so one of the most significant management challenges for the BLM 

stems from this rapid population growth and the increased demands for access to, and 

utilization of, the public lands that have accompanied it. The BLM’s customers are as diverse as 

the natural resources the bureau manages. In 2011, there were approximately 59 million visitors 

to the BLM lands, many of whom participated in recreational activities such as wildlife watching, 

hiking, camping, hunting, and whitewater rafting. BLM expects these numbers to increase in the 

years to come.

The BLM is uniquely positioned to significantly contribute to the success of the America’s Great 

Outdoors initiative and can help reconnect Americans to the outdoors and re-ignite the passions 

of the public for their outdoor legacy. The Bureau can directly facilitate and create partnerships 

to meet the challenges of conservation, improve real opportunity and access for all to enjoy their 

great outdoors, help solidify the role of conservation on a landscape scale, and support diverse 

recreation as part of the economies of local communities.

The 2013 budget request includes $6.3 million in program increases for various AGO-related

programs, including programs in the National Landscape Conservation System (NLCS), and a 

total increase of $11.2 million for land acquisition programs. The $6.3 million increase includes 

an increase of $1.1 million for the Cultural Resources Management Program, to be used for the 

inventory, protection, and interpretation of places of special meaning to the diverse communities 

of the American West; conducting regional enthno-geographic landscapes assessments; 

engaging underrepresented groups in heritage resource stewardship; repatriating to Native 

Americans human remains and cultural items held in BLM collections; and implementing the 

Paleontological Resources Preservation subtitle of the Omnibus Public Lands Act of 2009. An 

increase of $1.1 million in the Recreation Resources Management program will be used to 

enhance off-highway vehicle management by completing more Travel Management Plans to 
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Initiatives Page IV - 2

address the demand for public services, ensure public health and safety, protect natural and 

cultural resources, and reduce conflicts in high-priority areas. An increase of $3.0 million will be 

used for National Monuments and National Conservation Areas to enable the BLM to provide 

enhanced resource protection and visitor safety; develop additional interpretive and 

environmental education products; and continue research, monitoring, and site maintenance 

projects. Additional increases in the Recreation Resources Management program include

$400,000 that will be used to increase inventory, monitoring, and protection of the “outstanding 

remarkable values “ on Wild and Scenic Rivers, and $700,000 that will be used to enhance 

management of 16 separate National Scenic and Historic Trail units.

In the land acquisition program, a portion of the funding allocated from the Lands and Water 

Conservation Fund to each of the bureaus targets a collaborative acquisition effort to focus 

acquisition projects from each bureau in high-priority landscapes. This effort will leverage 

acquisition funding towards larger-scale goals of collaborative landscape management. BLM is 

requesting an increase of $6.0 million for projects in these areas. In addition, the BLM is 

requesting an increase of $1.6 million in the core land acquisition program. The BLM’s core 

acquisition program is aligned with the larger Departmental collaborative initiative, as 97 percent 

of BLM’s acquisitions in its core program in 2013 will occur in the Department-designated 

collaborative priority landscapes.

An additional $2.5 million increase is requested to allow for purchase of lands, or an interest in 

lands, for access. The access of hunters and anglers to the public lands is often frustrated by 

complicated, “checker-board” land ownership patterns. Acquiring lands, or an interest in lands, 

for hunting and fishing access can alleviate some of these challenges and provide the public 

better access to valuable public recreation opportunities. Finally, the BLM requests an increase 

of $1.1 million for the acquisition management program, to focus on capacity building, 

succession and workforce planning, and continuity of operations for the years to come. Total 

funding for the land acquisition account is $33.6 million.

In 2013, the BLM will continue participation in the Federal Interagency Council on Outdoor 

Recreation (FICOR), a coordinating organization of the seven federal partners in America's 

Great Outdoors. FICOR works closely with other organizations that support recreational 

activities, including the Wildlife and Hunting Heritage Conservation Council, the Sport Fishing 

and Boating Partnership Council, the First Lady's "Let's Move" initiative, and the President's 

Council on Fitness, Sports, and Nutrition.

Part of the larger America’s Great Outdoors (AGO) initiative, the BLM Youth Program provides a 

continuum of programs that engage young people from early childhood through early career. As 

outlined in the Strategy for the BLM’s National Landscape Conservation System, BLM’s Youth 

Program is recruiting youth from all backgrounds for entry-level careers and engaging them in 

recreation, education, and stewardship on conservation lands. BLM’s youth programs include 

programs to engage, educate and employ youth.

In 2013, in partnership with other governmental entities, educational institutions, and service 

organizations, the BLM will engage America’s youth in their outdoor heritage through outreach, 

education, volunteer opportunities, and public service employment. The BLM will maintain its 

current successful programs to engage youth through interpretive, stewardship, and 

environmental education programs. In partnership with other Federal agencies and multiple 

NGOs, the BLM will reach out to school populations across the country through web-based 

programs, curricula development, teacher training, hands-on experiential education, and fieldbased partnership programs. The BLM will also continue support for seasonal employment, 
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Initiatives Page IV - 3

youth corps, intern, and volunteer programs that promote public service and benefit 

conservation. Targeting youth employment, public service, volunteer and conservation corps 

opportunities, the BLM will continue to be a key provider in youth employment by working with 

partners to provide youth and their families with on-the-ground outdoor learning opportunities 

and experiences.

Youth engagement programs provide youth with opportunities to pursue healthy life-styles in the 

outdoors, to explore the natural and cultural resources managed by BLM, and to participate in 

stewardship of those resources. These programs include interpretative programs at visitor 

centers and the Take-It-Outside program to introduce children and families to outdoor recreation 

opportunities. Youth engagement programs also include programs and service projects 

operated through organizations such as the Boy Scouts of America, Girls Scouts of the USA, 

and other youth groups; as well as national annual service days in support of public lands, 

including National Public Lands Day and National Trails Day. Projects include work on trail 

improvement, fire rehabilitation, cultural resource inventory and stabilization, weed removal and 

other resource conservation projects. 

Youth education programs are offered in partnership with local schools and other educational 

organizations and provide students with hands-on opportunities to learn about the natural and 

cultural resources managed by the BLM. Hands on the Land is an interagency network of field 

classrooms that engages local schools and students from kindergarten-12th grade in a wide 

variety of outdoor education programs that meet curriculum needs and state standards. BLM 

develops resource education materials and curricula, and promotes teacher training and 

internships in natural and cultural resource program priorities (for example, archaeology, 

energy, fire, riparian, horses, wilderness, etc.). About 4 or 5 in-depth national level resourcespecific education and employment programs are implemented annually and are projected to 

reach hundreds of teachers and thousands of students each year.

BLM’s youth employment programs provide high school and college-age youth with 

opportunities to learn job skills and further their education by conducting natural and cultural 

resources work such as inventorying and monitoring, trails construction, habitat restoration, 

historic site stabilization, and education and interpretation. Internships and project-based work 

programs offer young people a thorough introduction to the resources BLM manages and to 

real-world, career-related experiences. Youth Program funding also supports recruitment 

strategies that to introduce youth from underserved and disadvantaged backgrounds to careers 

with the BLM, and to reach active-duty military, veterans, and military families in support of the 

White House Initiative on Strengthening Our Military Families. BLM participates in the Student 

Career Experience Program (SCEP), Student Temporary Employment Program (STEP), 

Presidential Management Fellows (PMF), and other intern programs.

The Jefferson Conservation Corps is a multifaceted, pilot youth training and employment 

program that builds on local and regional partnerships to provide work experience and training 

opportunities for disadvantaged young adults from the economically-challenged, rural 

communities in southern Oregon. This collaboration has created employment opportunities for 

15 youth, safeguarding working lands and forests while producing tangible results for natural 

resource improvement and protection. Partnership efforts have included the removal of 

hundreds of acres of harmful weeds, maintenance of miles of trails, and fish habitat and 

stream restoration in support of endangered Coho salmon.
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Initiatives Page IV - 4

NEW ENERGY FRONTIER

The BLM manages vast stretches of public lands that have the potential to make significant 

contributions to the Nation’s renewable energy portfolio. This gives the BLM a leading role in 

fulfilling the Administration’s goals for a new energy economy based on a rapid and responsible 

move to large-scale production of solar, wind, geothermal, and biomass energy. The BLM also 

manages Federal onshore oil, gas, and coal operations that make significant contributions to the 

domestic energy supply as the Nation transitions to a clean energy future.

The BLM manages more Federal land than any other agency – about 248 million surface acres,

as well as 700 million sub-surface acres of mineral estate. As these lands are increasingly 

tapped to develop clean, renewable energy, the U.S. can reduce its environmental and 

greenhouse gas footprint while also providing opportunities for creating new jobs to support 

local communities. Public lands also provide sites for new modern transmission facilities needed 

to deliver clean power to consumers.

Not all lands with energy potential are appropriate for development. The BLM reviews and 

approves permits and licenses from companies to explore, develop, and produce both 

renewable and non-renewable energy on Federal lands. The Bureau ensures that proposed 

projects meet all applicable environmental laws and regulations. The BLM works with local 

communities, states, industry, and other Federal agencies in this approval process and has set 

up four Renewable Energy Coordination Offices and seven oil and gas Pilot Offices to facilitate 

reviews. In addition, the BLM participates in a Cabinet-level working group that is developing a 

coordinated Federal permitting process for siting new transmission projects that would cross 

public, State and private lands.

Once projects are approved, the BLM is responsible for ensuring that developers and operators 

comply with use authorization requirements and regulations. Although the Bureau of Indian 

Affairs issues mineral leases on Indian lands, the BLM approves and supervises mineral 

operations on these lands.

More information about the BLM’s conventional energy program can be found at this

website: http://www.blm.gov/wo/st/en/prog/energy/oil_and_gas.html.

Statistics on the BLM’s conventional energy program can be found at the following 

website: http://www.blm.gov/wo/st/en/info/newsroom/Energy_Facts_07/statistics.html.

More information about the BLM’s renewable energy program can be found at this 

website: http://www.blm.gov/wo/st/en/prog/energy/renewable_energy.html.

The 2013 budget for the Renewable Energy Management program includes a total program 

increase of $7.0 million. This includes $5.0 million in new funding which will fund additional 

environmental studies to accelerate the identification of prime areas for utility-scale renewable 

energy project development and also support BLM’s ongoing program management 

responsibilities associated with geothermal energy development by replacing mandatory funding 

that was previously provided for this purpose through the Geothermal Steam Act 

Implementation Fund, which has expired. The remaining $2.0 million increase is a transfer of 

the Geothermal funds from the Oil and Gas Management program to the Renewable Energy 

Management program.
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Initiatives Page IV - 5

The 2013 budget request also provides the BLM with the necessary funds to provide timely 

access to Federal oil and gas resources, ensure that they are developed in an environmentallyresponsible manner, and ensure that the Federal Government is collecting the proper share of 

revenue from oil and gas production on Federal lands. A $5.0 million program increase restores 

the BLM’s leasing and oversight capacity to the 2011 enacted level.

A $5.0 million programmatic increase is requested to enable the BLM to effectively implement 

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

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

participation and a more thorough environmental review process and documentation required by 

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

BLM to conduct defensible and timely lease parcel environmental analysis. In addition, BLM is 

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

statements for conventional energy issues.

The 2013 budget also proposes to expand and strengthen the BLM’s oil and gas inspection 

capability through the imposition of fees on industry. The fee schedule included in the budget is 

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

$38.0 million in appropriated funds, providing for a net increase of $10.0 million in funds 

available for this critical BLM management responsibility. In 2013 the additional $10 million will 

be used to hire additional Petroleum Engineering Technicians and Petroleum Accountability 

Technicians to ensure the majority of oil and gas production will be accounted for in a three year 

cycle of reviews. Additional environmental staff will also be hired to complete environmental 

inspections prior to drilling and ensure environmental requirements are being followed after 

drilling is complete. The BLM will also continue to seek out new technology solutions, such as 

automated production metering, to improve its systems for reporting, tracking, and auditing 

production data from operators.

Beyond these proposed changes in the request for appropriations, the 2013 BLM budget 

request assumes that approximately $19.0 million in mandatory funding continues to be 

available for the oil and gas program from the Permit Processing Improvement Fund. The 

budget proposes to repeal Section 365 of the Energy Policy Act of 2005, effective in 2014, and 

redirect the rental income to the Treasury where it has traditionally been deposited. The budget 

continues the existing fees for processing Applications for Permits to Drill, generating an 

estimated $32.5 million in 2013.
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Initiatives Page IV - 6

GREATER SAGE-GROUSE CONSERVATION

In March 2010, the U.S. Fish and Wildlife Service (FWS) ruled that listing the greater sagegrouse for protection under the Endangered Species Act was “warranted but precluded.” The 

FWS said that it would subsequently address the greater sage-grouse and determine if it 

needed to be listed at a later date. In its finding, the FWS said the BLM was not “fully 

implementing the regulatory mechanisms available” to ensure species conservation. The BLM is 

addressing the FWS concerns through a planning process formally initiated in late 2011.

About the Greater Sage-Grouse

Wyoming supports significant sage grouse populations

The greater sage-grouse is an icon of western sagebrush ecosystems. It is a large, roundedwinged, spike-tailed, ground-dwelling bird, about two feet tall and weighing from two to seven 

pounds. Females are a mottled brown, black and white. Males are larger and have a large 

white ruff around their neck and bright yellow air sacks on their chest, which they inflate during 

their elaborate mating displays.

Once seen in great numbers across sagebrush landscapes of the West, sage-grouse have 

declined in number over the past one hundred years because of the loss and degradation of 

sagebrush habitats essential for their survival. Greater sage-grouse now occupy only about 56 

percent of the habitat that was available to them before the arrival of settlers of European 

descent.

States manage all resident wildlife, including sage-grouse, through their respective wildlife 

management divisions or departments. Federal agencies such as the BLM are responsible for 

managing habitat on the lands under their respective jurisdictions. The BLM manages 

approximately 50 percent of the greater sage-grouse’s habitat. The sage-grouse is culturally 

significant to American Indian Tribes; many of which have traditional ceremonies, treaty rights, 

and conservation activities associated with the bird. Local governments and private 

landowners or administrators may also have responsibilities related to wildlife and habitat.
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Initiatives Page IV - 7

For FY 2013, the BLM is requesting $15 million to implement conservation measures to protect 

the greater sage-grouse. Of that amount, BLM is requesting $10 million to incorporate the 

necessary regulatory mechanisms into BLM’s land use plans to address conservation of the 

greater sage-grouse.

The BLM has started a formal planning process to evaluate greater sage-grouse conservation 

measures in land use plans in 10 Western states. Based on ongoing threats to the greater sagegrouse and its habitat throughout the West, as well as the 2015 deadline for the FWS to make a 

decision about whether or not to list the species under the Endangered Species Act, the BLM is 

incorporating consistent objectives and conservation measures into relevant Resource 

Management Plans by September 2014. As a result, the accompanying environmental reviews 

will be conducted under expedited timeframes.

Working with Federal, State, local and tribal partners, the BLM will use land use plans to 

implement actions range-wide to conserve and restore the greater sage-grouse and its habitat 

on BLM lands over the short term and the long term. The BLM is committed to conserving the 

habitat of the greater sage-grouse to prevent the species from being listed under the 

Endangered Species Act.

Greater sage-grouse currently use as much as 47 million acres of land managed by the BLM. 

As many as 98 BLM Resource Management Plans in 68 planning areas address greater sagegrouse. The BLM expects to prepare Environmental Impact Statements to analyze proposed 

amendments to some land use plans that are not currently undergoing amendment or revision. 

For plans already under amendment or revision, the BLM will consider incorporating 

conservation measures, either through the ongoing amendment or revision process, or through 

Supplemental Environmental Impact Statements.

In an effort to encourage tailored, region-specific partnerships, cooperation, and restoration 

measures, the planning process is being coordinated under two regions: an Eastern region 

which includes land use plans in the states of Colorado, Wyoming, North Dakota, South Dakota 

and portions of Utah and Montana; and a Western Region which includes land use plans in 

northeastern California, Idaho, Nevada, Oregon, and portions of Utah and Montana.

The BLM planning strategy does not apply to the Washington State Distinct Population Segment 

(DPS) and California/Nevada “bi-state” DPS, of the greater sage-grouse. Sage-grouse in 

Washington have been managed under a specific Washington Greater Sage-Grouse Recovery 

Plan since 2004. The BLM has limited involvement in the Washington State DPS and only 

manages about 5 percent of the remaining habitat for this population. The “bi-state” DPS exists 

in a small area in California and Nevada. It is being addressed by the FWS with different 

timeframes and processes. It also does not apply to Gunnison sage-grouse, which is a separate 

species. The Gunnison sage-grouse is being addressed by the Range-wide Conservation Plan 

(RCP). It includes a suite of conservation strategies designed to address localized and rangeIM 2012-043: Greater Sage-Grouse Interim Management Policies and Procedures

http://www.blm.gov/wo/st/en/info/regulations/Instruction_Memos_and_Bulletins/national_instruct

ion/2012/IM_2012-043.html

IM 2012-044: BLM National Greater Sage-Grouse Land Use Planning Strategy

http://www.blm.gov/wo/st/en/info/regulations/Instruction_Memos_and_Bulletins/national_instruct

ion/2012/IM_2012-044.html
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Initiatives Page IV - 8

wide threats to the species, and has been used to help design projects and management 

strategies within its habitat.

The BLM is requesting a $2.5 million increase to restore and improve key greater sage-grouse 

habitat. BLM is managing sage-grouse at a landscape scale, and planning units must outline 

landscape vegetation management objectives for conserving sage-grouse habitat and 

sagebrush. The BLM increase will help BLM to take actions to limit the size and intensity of 

wildfire and the continued expansion of non-native invasive grasses in the understories of 

sagebrush plant communities. Habitat restoration and improvement includes activities such as: 

pinyon/juniper mechanical treatment; invasive species control; mechanical sagebrush thinning; 

riparian restoration; sagebrush and other native plant seeding; installation of fuel breaks and 

other fuels management; and fence removal and marking to reduce mortality.

The Bureau is also requesting a $2.5 million increase to collect the information necessary to 

effectively manage the greater sage grouse. In 2010, the BLM developed a range-wide breeding 

bird density map in partnership with the Western Association of Fish and Wildlife Agencies. The 

BLM will continue to work with the state fish and wildlife agencies, using a consistent protocol, 

to refine this map to delineate areas of high priority habitat across the range of sage-grouse. 

These maps will serve as a platform for a more directed Bureau-wide sage-grouse policy, as 

well as the range-wide BLM planning effort. As the BLM completes range-wide priority habitat 

maps and inventory work, it will work in coordination with the respective state fish and wildlife 

agency through the planning process to identify specific management actions on a landscape 

level that will be undertaken both inside and outside of identified priority habitat in order to 

maintain sustainable sage-grouse populations.

A range-wide approach to managing sage-grouse is necessary as populations cross many 

jurisdictional boundaries and activities that threaten or negatively impact the species may also 

cross many of these boundaries. Although local monitoring is important for adaptive 

management on the allotment level, there is also a need to be able to monitor actions across 

boundaries. The BLM and NRCS initiated a landscape monitoring project in 2011 to begin to 

collect statistically-quantitative data that can be rolled together to report on the condition of 

landscapes. In 2012, the BLM plans to intensify data collection across thirty populations of 

greater sage-grouse in the west to begin to understand the impacts of use authorizations across 

sage-grouse habitats. In addition, GIS support and data management will be necessary in both 

the short- and long-term as the BLM transitions from intensive, large-scale planning to 

landscape-level and program-specific management to ensure the long-term sustainability of 

sage-grouse and the suite of species that are dependent on sagebrush for their survival.

http://www.blm.gov/wo/st/en/prog/more/sage_grouse_home2.html

For additional information on the BLM's efforts to maintain and restore sagebrush landscapes 

on public lands, please visit the BLM's new Greater Sage-Grouse Conservation website:
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 1

CROSSCUTTING PROGRAMS

The BLM has a number of programs that are funded through multiple sources. The National 

Landscape Conservation System (NLCS) is one of the primary examples in which this is the 

case and its components are described below. In addition, the BLM has partnership, education, 

and volunteer programs funded from a number of sources. Service First and BLM’s partnership 

program provide tools to BLM managers to more efficiently and effectively use funding and to 

provide results on the ground.

NATIONAL LANDSCAPE CONSERVATION SYSTEM

The BLM is unique in its legacy of managing the public lands for multiple uses, including 

conservation. More than 27 million acres of the BLM’s land is recognized for outstanding 

conservation values and designated for special management by Acts of Congress or 

Presidential Proclamations. The BLM manages these lands as units in the NLCS.

The NLCS manages these special areas especially to maintain and enhance their conservation 

values and allow for multiple, sustainable uses of the land. The System’s goal is to conserve, 

protect, and restore these important landscapes and their outstanding cultural, ecological, and 

scientific values. National Monuments and National Conservation Areas, Wilderness Areas, 

Wilderness Study Areas, Wild & Scenic Rivers, and National Scenic & Historic Trails are all 

managed as NLCS units. These areas are very diverse, ranging from broad Alaskan tundra to 

red-rock deserts and from deep river canyons to rugged ocean coastlines. While some of these 

special places are surprisingly accessible, many others remain remote and wild.

The NLCS manages units that include over 2,700 recreation sites and 22 visitor centers, and 

serves some 14 million visitors annually. Approximately one-quarter of all recreation use of BLM 

lands occurs within NLCS units.. Thus the NLCS contributes to the sustainability of economies 

in local communities in a variety of ways. Near Las Vegas, Nevada, for example, the extremely 

popular Red Rock Canyon National Conservation Area is visited by over 1 million people each 

year. Here, visitors generate over $1.7 million in recreation fees that are re-invested in the 

RRCNCA, and directly contribute to the regional tourist economy.

An important cooperative effort is that the BLM supports the creation of recreation facilities in 

nearby communities rather than building extensive facilities within NLCS units. In New Mexico

for instance, the BLM is working with the Las Cruces Museum of Nature and Science to locate a 

small visitor center within the city’s museum. The new visitor center will provide educational 

opportunities about BLM-managed resources at the nearby Prehistoric Trackways National 

Monument, and draw additional tourism that supports the local economy. In addition to 

recreation, the NLCS supports scientists making new discoveries, the protection of critical 

habitat for threatened and endangered species, and the protection of nationally-significant 

cultural resources.

In September 2011, the National Landscape Conservation System released its 15-year strategy 

to guide the direction of management of its units in cooperation with the rest of the Bureau. The 
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 2

new NLCS strategy supports the BLM’s multiple-use mission by ensuring that NLCS 

management efforts focus on conservation, while still allowing for other compatible multi-uses

consistent with each unit’s designating legislation or presidential proclamation. In addition to 

conservation, the strategy emphasizes continued collaboration, public involvement, and youth

engagement. For more information on the NLCS 15-year Strategy, visit the BLM website 

at: http://www.blm.gov/wo/st/en/info/newsroom/2011/september/NR_09_30_2011.html.

The Strategy ensures that the NLCS will continue to manage these public lands in adherence to

Public Law 111-11, which codified the System in 2009. The following goals are laid out in the 

Strategy:

• Ensuring NLCS units are managed to protect the values for which they were designated.

• Managing the NLCS as part of the larger landscape in collaboration with neighboring 

land owners and surrounding communities.

• Enhancing the public’s awareness of opportunities to experience these natural, cultural, 

and historic lands.

• Integrating science into management decisions to achieve greater understanding of 

lands and resources through research and education and to promote their cooperative 

stewardship.

• Building and sustaining diverse communities of partners and volunteers dedicated to 

conserving, protecting, restoring, and interpreting our natural and cultural heritage.

• Inspiring the next generation of natural resource and public land stewards by engaging 

youth through education, interpretation, partnerships, and job opportunities in 

accordance with the Secretary’s “Youth in the Great Outdoors” initiative and the White 

House’s “Let’s Move Outside” initiative.

The NLCS includes the following unit designations. Each of these unit designations is funded in 

a different fashion.

• National Monuments and National Conservation Areas (two subactivities, MLR and 

O&C).

• Wilderness/Wilderness Study Areas (subactivity).

• National Wild and Scenic Rivers (cross-cutting).

• National Scenic and Historic Trails (cross-cutting).

Funding Sources for the National Landscape Conservation System

NLCS Component Funding Source(s)

National 

Monuments/National 

Conservation Areas

Two National Monument and National Conservation Area subactivities 

provide base funding: one subactivity in Management of Lands and 

Resources (MLR) and one in the Oregon and California Grant Lands 

appropriation. These two subactivities are discussed in the appropriations 

sections of these Budget Justifications.

Wilderness/Wilderness 

Study Areas

Wilderness Management subactivity in the MLR appropriation. This program 

is discussed in the MLR appropriation section of these Budget Justifications.

National Wild and 

Scenic Rivers

A composite of subactivities in the MLR appropriation. This program is 

discussed below.

National Scenic and 

Historic Trails

A composite of subactivities in the MLR appropriation. This program is 

discussed below.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 3

The following table displays the amounts of funding allocated to the NLCS. These amounts 

represent recurring base funding only; they do not include additional one-time funds that may 

vary significantly from year to year.

Summary of NLCS Direct Funding

(Dollars in Thousands)

Program 2011 

Actual

2012 

Enacted 

2013 Change 

from 

2012 

Enacted

(+/-) 

Fixed Costs & 

Related 

Changes (+/-)

Program 

Changes

Budget 

Request

National Monuments and 

National Conservation 

Areas 

(MLR Appropriation) a

 31,870 31,819 +296 +3,000 35,115 3,296

National Monuments and 

National Conservation 

Areas 

(O&C Appropriation)

831 748 +8 0 756 +8

Wilderness Management 

(MLR Appropriation) 19,664 18,392 +176 0 18,568 +176

National Scenic and 

Historic Trails b 6,743 6,743 0 +700 7,443 + 700

National Wild and Scenic 

Rivers c 7,267 7,267 0 +400 7,667 + 400

TOTAL 64,565 64,969 +480 + 4,100 69,549 +4,580

Footnotes—

a. The National Monuments and National Conservation Areas subactivity also receives a small amount of funds from o 

programs for Bureau-wide priority projects. Funding amounts vary significantly each year as a result of project selec 

priority areas and individual state requests. 

b. The National Scenic and Historic Trails program would receive an increase of $700,000 in the Recreation Resource 

Management Program.

c. The Wild and Scenic Rivers program would receive an increase of $400,000 in the Recreation Resources Managem 

Program.

Iditarod National Historic Trail

A 27-mile segment of the Iditarod Trail that was effectively closed by a 100,000-acre 

fire in the summer of 2010 was reopened in the winter of 2011 by a local community 

working with funding provided by the Department of the Interior’s FY 2011 burned area 

emergency stabilization program. Working through mid-winter temperatures of -30F, 

the Nikolai, Alaska-based crew expressed appreciation for paid work during a period 

that otherwise offers few employment opportunities in rural Alaska.
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Chapter V – Crosscutting Programs Page V - 4

Units of the National Landscape Conservation System

The following table displays the individual units, by designation type, included in BLM’s National 

Landscape Conservation System. The NLCS includes National Monuments, National Conservation Areas 

and Similar Designations, Wilderness Areas, Wilderness Study Areas, National Wild and Scenic Rivers, 

National Historic Trails, National Scenic Trails, and Other Congressional Designations.

16 National Monuments 4,813,650 

acres

Arizona

Agua Fria 70,900 acres

Grand Canyon-Parashant 808,747 acres

Ironwood Forest 128,398 acres

Sonoran Desert 486,600 acres

Vermilion Cliffs 279,568 acres

California

California Coastal 607 acres along 

840 miles of 

coastline

Carrizo Plain 204,107 acres

Santa Rosa-San

Jacinto Mtns. 

94,055 acres

Colorado Canyons of the Ancients 163,892 acres

Idaho Craters of the Moon 274,693 acres

Montana Pompeys Pillar 51 acres

Upper Missouri River Breaks 374,976 acres

New Mexico Kasha-Katuwe Tent Rocks 4,124 acres

Prehistoric Trackways 5,255 acres

Oregon Cascade-Siskiyou 55,930 acres

Utah Grand Staircase-Escalante 1,866,134 acres

21 National Conservation

Areas and Similar Designations

4,110,116 

acres

Alaska Steese NCA 1,208,624 acres

Arizona

Gila Box Riparian NCA 21,767 acres

Las Cienegas NCA 41,972 acres

San Pedro Riparian NCA 55,495 acres

California

King Range NCA 56,167 acres

Headwaters Forest Reserve 7,542 acres

Piedras Blancas Historic 

Light Station Outstanding 

National Area (ONA)

18 acres

Colorado

McInnis Canyon NCA 123,750 acres

Gunnison Gorge NCA 62,844 acres 

Dominguez-Escalante NCA 212,074 acres

Florida Jupiter Inlet Lighthouse ONA 63 acres

Idaho Morley Nelson Snake River 

Birds of Prey NCA

470,840 acres

New Mexico Fort Stanton-Snowy River

Cave NCA

24,977

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 El Malpais NCA 231,230 acres

Oregon

Steens Mountain

Cooperative Management

and Protection Area

428,242 acres

Yaquina Head ONA 95 acres

Utah Red Cliffs NCA 44,839 acres

Beaver Dam Wash NCA 63,478 acres

221 Wilderness

Areas

8,736,691

acres

545 Wilderness Study 

Areas

12,835,035

acres

69 National Wild and 

Scenic Rivers 2,416 miles

1,164,894 acres (20% of the national system)

11 National Historic 

Trails 5,343 miles 

California 1,493 miles

El Camino Real de 

Tierra Adentro 60 miles

Iditarod 418 miles

Lewis and Clark 369 miles

Mormon Pioneer 498 miles

Nez Perce 70 miles

Oregon 848 miles

Pony Express 596 miles

San Juan Bautista De Anza 103 miles

Old Spanish 887 miles

Washington Rochambeau

Revolutionary Route 1 mile

5 National Scenic 

Trails 667 miles

Arizona 31 miles

Continental Divide 389 miles

Pacific Crest 233 miles

Pacific Northwest 12 miles

Potomac Heritage 2 miles

Other Congressional 

Designations

California Desert 

10,671,080 

acres
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 5

National Monuments and National Conservation Areas

The BLM manages 8.9 million acres of public lands representing the crown jewels of the NLCS. 

These public land units include BLM’s 16 National Monuments (NMs), 16 National Conservation 

Areas (NCAs), three Outstanding Natural Areas, one Cooperative Management and Protection 

Area, and one Forest Reserve. The BLM’s NMs and NCAs are primarily managed to conserve, 

protect, restore, and enhance America’s national heritage.

The NMs and NCAs host a wide variety of spectacular public land resources administered by 

the BLM. The Bureau’s NMs and NCAs include lands as diverse as the 1.2 million-acre Steese 

National Conservation Area, which protects two of Alaska’s most important caribou herds; the 

Fort Stanton-Snowy River Cave National Conservation Area, which protects both the aboveground historic remnants of the U.S. military’s 19th century presence in the New Mexico 

Territory and the unique subterranean geologic resources of the Snowy River Cave system; and 

Colorado’s Canyons of the Ancients National Monument, which protects the highest known 

density of First American archeological sites in the United States, including cliff dwellings, 

villages, kivas, shrines, agricultural fields, and rock art, some of which are over 10,000 years 

old. 

More information on funding for the National Monuments and National Conservation Areas can 

be found in the National Monuments and National Conservation Areas section, in the 

Management of Land and Resources Appropriation.

Wilderness and Wilderness Study Areas

The Wilderness Management program provides for conservation, protection, and restoration of 

wilderness values in managing Designated Wilderness Areas and BLM-managed Wilderness 

Study Areas. As of 2011 the NLCS manages 221 Wilderness Areas (totaling over 8.7 million 

acres) and there are 545 Wilderness Study Areas (totaling 13 million acres). 

Wilderness Areas are undeveloped Federal lands designated by Congress to be managed to 

protect their wilderness characteristics as defined by the Wilderness Act of 1964. These 

designated areas represent natural, mostly undeveloped landscapes that offer outstanding 

opportunities for solitude or primitive and unconfined types of non-mechanized recreation. 

Wilderness Study Areas (WSAs) are roadless areas containing wilderness characteristics and 

are protected to maintain those characteristics until Congress designates them as Wilderness 

Areas or releases them for non-wilderness uses. The Bureau manages WSAs in much the 

same way as Designated Wilderness. 

More information on funding for this program can be found in the Wilderness Management 

section, in the Management of Land and Resources Appropriation.

National Wild and Scenic Rivers

The National Wild & Scenic Rivers (WSR) program in the NLCS includes 69 rivers in 7 states 

totaling 2,416 miles and approximately 1,165,000 acres. These rivers encompass approximately 

20 percent of the National Wild and Scenic River System.
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Chapter V – Crosscutting Programs Page V - 6

As outlined in the NLCS 15-year strategy, the WSR program is focused on providing or 

supporting the NLCS priority to conserve, protect, and restore these nationally significant 

resources. Each WSR is managed to ensure protection and enhancement of the unique values 

and resources for which it was designated. The WSR program uses a variety of means to 

conduct its work. Creative use of partnerships, volunteers, scientific research, networking, and 

outreach provide the means to accomplish much of the work pertaining to management of the 

BLM’s WSR system. Implementing WSR management plans and associated protective 

measures for eligible and suitable rivers will remain a Bureau priority.

The BLM is highly successful in leveraging and using resources and cooperates with both the 

National Park Service and the U.S. Forest Service 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 Wild and Scenic Rivers program is funded by contributions from various subactivities in the 

Management of Lands and Resources appropriation. Funding for 2011 and 2012 is $7.3 million. 

In 2013, this program will be funded at $7.7 million, which is an increase of $400,000. The BLM 

will increase work in inventorying and monitoring, as well as protecting and enhancing the 

“outstanding remarkable values” on 69 Wild and Scenic Rivers.

National Scenic and Historic Trails

National Scenic and Historic Trails are corridors of cultural heritage, conservation, and 

outstanding recreation opportunities. National Trails are conserved, protected, maintained, and 

restored within the NLCS. Sixteen Congressionally-designated NSHT (five scenic and 11 

historic) cross more than 6,000 miles of BLM public lands in 14 States. The BLM serves as 

trailwide administrator for the Iditarod, Old Spanish, and El Camino Real de Tierra Adentro 

National Historic Trails. The Bureau also supports five national trail-related visitor centers to 

foster public enjoyment, appreciation, and learning.

The BLM focuses attention not only on protecting the physical evidence (ruts, swales, traces) 

left by pioneers, traders, and Tribal ancestors along the historic trails while maintaining a 

continuous pathway across hundreds of scenic 

trail miles, but also concerns itself with managing

the surrounding environments. The landscape is 

important to trail visitors, including scenic, 

historic, natural, and cultural qualities of the areas 

through which trails pass, and influence or extent 

of cultural modifications within the trail setting. 

Activities authorized by the BLM within the trail 

setting or corridor can add to or detract from the 

high-quality recreation experience opportunities 

the public expects when they are touring, retracing, hiking, backpacking, or riding along these 

Congressionally-designated corridors.

National Scenic and Historic Trails are funded by multiple subactivities within the BLM’s 

Management of Lands and Resources appropriation. National Trail organizations may also 

provide up to $1.0 million annually in volunteer hours and monetary contributions. 

Pacific Crest National Scenic Trail

The Pacific Crest Trail (PCT) maintenance team 

completed trail construction and maintenance 

projects on BLM-administered sections of the PCT. 

This landmark funding of approximately $300,000 

resulted in over 25 youth employed, 200 miles of 

maintenance and reconstruction of the PCT, and 

more than 10,000 hours of youth corps and 

volunteer time devoted to the PCT.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 7

Administering agencies including the NPS and USFS provide some direct and indirect support 

to the BLM. In Wyoming, local communities supported the development of the BLM’s “corridor 

approach” to protect visitors’ vicarious experiences along the Oregon, California, Pony Express, 

and Mormon Pioneer National Historic Trails. About twenty major nonprofit trail organizations 

contribute thousands of hours working closely with the BLM in planning, development, 

operations, maintenance, and management of trails. These organizations continue to 

experience fund-raising and friend-raising issues critical to their survival. The BLM recognizes 

its key role in supporting these groups.

The Challenge Cost Share Subactivity also contributes one-time funding to projects in the NSHT 

program, leveraging partnership work. Fees collected at NSHT Visitor Centers and specific sites 

are returned to those locations to support management. The BLM funded the NSHT program at 

$6.7 million in 2011 and 2012, and is requesting an increase of $700,000 for 2013. The increase 

will support additional inventory, monitoring, cooperative agreements, training, and avoiding 

adverse impacts.

2012 National Scenic and Historic Trails Program Base Funding

(Dollars in Thousands)

State or Center

Funding Type

SWA

Range

Riparian

Cultural 

Wildlife

T & E

Recreation 

Annual & Ops 

Total

AK Base 5 66 5 0 457 155 688

AZ Base 5 31 5 5 109 10 165

CA Base 20 10 25 20 269 105 449

CO Base 5 10 10 10 32 10 77

ES Base 2 8 2 12

ID Base 29 25 22 42 10 20 391 72 611

MT Base 5 5 5 5 479 55 554

NV Base 5 60 10 10 460 97 642

NM Base 205 464 70 739

OR Base 5 15 5 559 281 865

UT Base 15 50 30 5 10 294 28 432

WY Base 5 143 20 10 651 193 1,022

OC Base 55 55

TC Base 16 16

WO400 Base 20 10 10 153 193

Total Base per 

Subactivity 121 75 22 627 100 100 4,397 1,078 6,520

This funding chart provides the major subactivities that contribute base funding to the National Scenic and Historic Trails 

program. This chart does not show certain contributing subactivities, one-time increases for land use planning efforts, or other 

one-time funding amounts. Therefore, this base amount is slightly less than the total shown in the Summary of NLCS Direct 

Funding.
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Chapter V – Crosscutting Programs Page V - 8

SERVICE FIRST

Service First is a partnership authority (P.L. 106-291, as amended by P.L. 109-54 and further 

amended by P.L. 112-74) of the BLM, the National Park Service (NPS), the U.S. Fish and 

Wildlife Service (FWS), and the U.S. Forest Service (FS). Service First authority was made 

permanent in the Consolidated Appropriations Act, 2012 (P.L. 112-74).

The BLM continues to strengthen partnerships between the NPS, the FWS, and the FS, 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.

Service First does not have its own budget line item, but instead is funded from whichever 

program is most appropriate, based on activity, within the BLM’s appropriations.

In 2013, 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 our rural 

communities, nurturing youth through education 

and connections to the outdoors, and recreation 

management including off-highway vehicle and 

trail management.

Service First will also continue to make advances 

in creating an integrated information technology 

system where employees will be able to access 

other agencies’ data and systems while 

maintaining appropriate security levels. Joint 

access to the more complex databases including

geographic information system, invasive weed 

inventories, and other natural resource data will 

result in more seamless customer service and improve operational efficiency for shared 

employees and co-located offices.

Finally, the agencies plan to build a strong interagency network with focused tools and regular 

outreach and information exchange such as best practices on Service First opportunities, 

challenges, and successes.

Efficient Government through Service First

The BLM’s San Luis Valley Field Office is a Service 

First, dual-delegated unit. All line officers have both 

Forest Service and BLM management authorities 

and responsibilities. All units are made up of 

blended staff. One unit also has a Fish and Wildlife 

Service Ecological Services staff member that 

provides technical assistance and, on some projects, 

is an interdisciplinary team member. The BLM and 

the Forest Service share personnel and resources 

with the San Luis Valley National Wildlife Refuge 

Complex and the National Park Service’s Great 

Sand Dunes National Park and Preserve.

By integrating staff, budget, and other resources, the 

BLM and the Forest Service are able to effectively 

save approximately 10 FTE compared to separate 

units. This savings is possible by adding to the 

capacity of one agency or the other to complete 

priority projects. Either agency can purchase 

expertise from the other; eliminating the need for 

each agency to have all expertise on staff. Flexibility 

is gained by the ability to move personnel to the 

agency and program where the need and funding is 

greatest.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 9

In 2011, the SFLT streamlined interagency agreements processes, developed a new National 

MOU with clearer guidance to the field on implementing Service First, resolved many IT 

interoperability challenges between agencies, initiated joint land management evaluations, and 

tasked regional executives from the four Service First agencies to hold learning workshops to 

share best practices with field units.

Several examples of 2011 field accomplishments include:

• The BLM Tres Rios Field Office and the San Juan National Forest in southwest 

Colorado continue to develop a joint Land and Resource Management Plan. The plan 

will provide for integrated, landscape level, resource management on the 2.5 million 

acres of BLM and National Forest System lands that the units manage jointly under a 

Service First partnership. The plan is slated for completion in 2012.

• The Southern Nevada Agency Partnership (SNAP), chartered in 1997, continues to 

operate under a local Service First Agreement among the BLM, NPS, FWS and FS. The 

SNAP organization consists of a four-member Board of Directors, 11 interagency teams, 

and a small support staff. In 2011, the partnership focused efforts on implementation of 

31 interagency projects in the areas of law enforcement, environmental education, 

cultural resource protection, habitat improvement, litter prevention and trash clean-up, 

recreation management, wilderness stewardship, volunteer engagement, research, and 

data sharing, cumulatively totaling more than $100 million. These projects are funded 

through the Southern Nevada Public Lands Management Act. Service First principles 

and authorities provide the foundation for partnership. Three of the four agencies share 

an office location. Personnel hired by one agency carry out work for the other agencies, 

and some are stationed with other agencies. Some staff members are jointly funded by 

multiple agencies. Agencies enter into contracts and agreements that benefit all of the 

partners. These and other means of working together continue to yield operational 

efficiencies and increase capacity to address management needs.

• The Mid-Columbia Service First Team provides a variety of conservation education and 

outreach events in southeastern Washington State and includes the Umatilla National 

Forest, the Mid-Columbia National Wildlife Refuge Complex, the National Park Service 

Whitman Mission Historic Site, and the U.S. Army Corps of Engineers, participating 

through a separate agreement. Over 10,000 young people participated in the Team’s 

programs in 2011, including a Salmon Summit, Natural Resources Career Day, Natural 

Resources Career Camp for Young Women, job fairs, conservation education programs, 

and classroom presentations. Forty percent of the participants were minorities.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 10

EDUCATION

Through a wide range of programs and activities, BLM engages, educates, and inspires people 

of all ages, teaching them about natural and heritage resources, encouraging healthy lifestyles 

through outdoor activities, fostering conservation and stewardship ethics, and nurturing the next 

generation of resource professionals. Engaging America’s youth with their public lands is a top 

priority of the Secretary.

The Bureau of Land Management offers a wide variety of educational programs for all ages.

• Field offices work with local schools to educate thousands of students and teachers by 

hosting the interagency Hands on the Land network of field classrooms at field locations.

• Project Archaeology, BLM’s primary heritage education program, serves educators and 

their students through professional development for classroom teachers and informal 

educators and through high-quality curricular materials. In addition to hosting 

professional development workshops for teachers, field offices present Project 

Archaeology lessons in local classrooms. Field trips, classroom visits by resource 

professionals, and service learning 

opportunities not only educate but also 

foster conservation and stewardship ethics.

• As appropriate, field offices link education 

efforts to special events, such as National 

Fossil Day and National Public Lands Day.

• Opportunities for young people and families 

to informally learn about the public lands are 

offered through “Take It Outside!” events, 

and partnerships with organizations such as 

the Boy Scouts of America, Girl Scouts of 

the USA, and Camp Fire USA. Such 

organizations expose youth to BLM natural 

and heritage resources and engage them in 

service projects to improve the public lands. 

“Take It Outside!” programs near urban 

areas provide opportunities for young people 

who might not ordinarily have a chance to 

experience the outdoors or even consider a career in natural resources.

• Junior Explorer products help children discover the conservation lands and other 

interesting places, as well as related science and social studies topics. Youth internships 

and employment expose students to careers and help field offices accomplish resource 

management goals.

The BLM uses technology to reach a broad array of audiences to enhance public 

understanding, achieve management goals, foster stewardship, and build public support. Web 

pages provide information about specific public lands sites and topics for students of all ages. 

BLM offices use social media and mobile technologies to provide educational programs and 

materials to an ever-expanding virtual audience.

In 2013, the BLM will develop and implement a national education and interpretation strategy 

that builds on existing agency signature programs such as Hands on the Land, Project 

Archaeology, and Take It Outside!; develop training to engage the public in stewardship of 

Las Cruces, New Mexico BLM’s Prehistoric 

Trackways National Monument partners with 

New Mexico State University to present 

paleontology lessons at local schools for a 

National Fossil Day event.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 11

priority NLCS areas and other BLM lands through education, partnering with local schools and 

educators to provide educational programs that support local standards and curricula; collect 

data to assess education program costs, benefits, and effectiveness at both the state and 

national levels; increase the use of technologies such as downloadable applications and audio 

tours to reach a broad array of audiences with educational information, programs and materials 

on natural and heritage resources; and continue efforts to expand and enhance opportunities to 

educate young people about Bureau priorities, such as invasive species, fire, careers, and 

stewardship ethics.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 12

INTERPRETATION

Interpretive programs and services connect public 

lands visitors to natural and cultural resources, 

enhance understanding of resource management 

issues, add to the quality of visitor experiences, and 

build public interest. Positive encounters resulting 

from high-quality interpretation programs also 

ultimately serve the public lands and resources 

themselves by increasing public support for their 

conservation.

BLM field staffs employ a full range of interpretive 

techniques and media, including new and emerging 

technologies, to help the public relate to public 

lands, develop positive stewardship practices, 

provide safe experiences, and, in accordance with 

the Science Strategy of the National Landscape 

Conservation System, convey the results of 

scientific research. BLM visitor centers offer programs for children and families, such as Junior 

Explorer programs, and extend their outreach to youth groups and schools.

BLM sites work collaboratively with internal and external groups to develop interpretive plans, 

and to assess the costs, benefits, and effectiveness of interpretative programming. The BLM 

serves audiences with diverse backgrounds, viewpoints, and abilities, and interpretation 

programs and materials can help to encourage public investment in public lands

In FY2011 almost 15,000 interpretive programs 

were presented at 218 BLM sites, and customer 

satisfaction with BLM programs was 92 percent. 

The BLM used interpretation programs and 

materials to enhance recreation experiences for 

visitors, promote responsible land management

practices, develop after-school programs, and 

expose youth to career possibilities.

In 2013, the BLM will develop a national strategy 

and training modules that provide staff the 

framework and expertise to build visitor experience 

plans for priority areas within the National 

Landscape Conservation System and other BLM 

sites. BLM will also assess interpretation program 

costs, benefits, and effectiveness at both the state 

and national level; incorporate interpretation into 

natural resource programming; and develop ways to expand existing interpretation, safety and 

resource messages, and information about BLM lands to the public through new and existing 

hand-held technologies.

Project Archaeology

Project Archaeology, a national education program 

jointly sponsored by the BLM and Montana State 

University, operates under multiple Federal and 

non-Federal partnerships at national, State, and 

local levels to effectively further heritage 

stewardship education across the country. 

Established in 1990, the program annually delivers 

high-quality educational materials and professional 

development training nationally to nearly 10,000 

classroom teachers and informal educators 

through a collaborative network of 29-state and 

regional programs. These programs annually 

engage an estimated 210,000 student learners in 

cultural resource stewardship education in 

classrooms, museums, visitor centers, and in 

America’s great outdoors, including public lands 

managed by the BLM.

Students in an interpretive art class gain 

inspiration from the Big Sandy River and 

adjacent public lands in Wyoming.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 13

PARTNERSHIPS

BLM helps foster partnerships to meet the challenges of conservation, improve real opportunity 

and access for all to enjoy their great outdoors, help solidify the role of conservation on a 

landscape scale, and support diverse recreation as part of the economies of local communities.

Because of this, partnerships have become an integral part of the America’s Great Outdoors 

initiative.

The BLM places a high value on partner and 

stakeholder involvement in the land management 

process and fostering collaborative opportunities to 

support this involvement. Working with others is an 

increasingly important way for the BLM to leverage 

resources to address agency priorities, foster 

critical community-level support, meaningfully 

engage communities and stakeholders, attract and 

inform visitors, and resolve complex natural and 

cultural resource management issues. The BLM is 

uniquely positioned to support and benefit from 

partnerships and collaborative ventures.

BLM’s great array of partners provide invaluable

support, helping the agency provide opportunities 

to engage the public in conserving, enjoying, and using appropriately the irreplaceable treasures 

within the National System of Public Lands. The BLM’s partners have demonstrated their 

commitment to these objectives through contributions to resource projects, providing volunteers 

to support community-based activities on public lands, efforts to educate and involve the public 

about the benefits of public lands and the importance of conservation, and donations of services 

and materials. Each year, hundreds of partner organizations help in a wide variety of BLM 

projects and efforts at the community, landscape, and national levels. For more information on 

BLM’s award winning partnerships, visit the DOI Cooperative Conservation Awards 

at: http://www.doi.gov/news/pressreleases/Salazar-Honors-Partners-in-Conservation-AwardWinners.cfm

In 2013, the BLM will further develop and bolster its capacity to support partnerships to 

continually improve the management of the nation’s public lands. To achieve this objective, the 

BLM will finalize and begin to implement a National Partnerships Program Strategy that will 

serve as a national framework for supporting, advancing, and strengthening the use of 

partnerships in programs throughout the BLM. The strategy and plan will build on the Bureau’s 

extensive and successful partnership efforts and seek to advance them to the next level.

Examples of recent partnership success include the following: 

• The Wyoming Landscape Conservation Initiative was launched by a coalition of State of 

Wyoming and Federal agencies as a long-term, science-based, effort to assess, monitor, 

and enhance aquatic and terrestrial habitats on a landscape-scale in southwestern 

Wyoming. The partnership leverages the resources of multiple partners to build a shared 

vision for this 19-million-acre area, balancing open spaces, abundant wildlife, traditional 

agriculture, and production of energy, non-energy, and other resources. So far, over 24 

million acres have been treated through partner work resulting in the improvement of 

Volunteers sample water as part of the Gila 

Watershed Partnership of Arizona.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 14

habitat for the Greater Sage Grouse, mule deer and pronghorn antelope. The initiative 

also facilitates responsible development through local collaboration and partnerships.

• Among a diversity of community-based partnerships throughout the BLM is the highly 

successful partnership between the Friends of Red Rock Canyon (Friends) – a non-profit 

organization established to assist BLM through volunteer and other efforts – and the Red 

Rock Canyon National Conservation Area (Red Rock) in southwestern Nevada. 

Annually, the Friends provide considerable support and vital services to Red Rock, 

including more than 118 volunteers who donate in excess of 27,500 hours of volunteer 

time. The Friends also provide funding to support activities at Red Rock, such as 

transportation to bring students out for hands-on environmental educational 

opportunities and clean-up and habitat improvement projects.

• The Permian Basin Memorandum of Agreement Program is an innovative, collaborative 

partnership among the BLM, State historic preservation organizations and the Mescalero 

Apache Tribe that uses geographic information systems technology and offsite mitigation 

to protect cultural resources while streamlining and facilitating energy development in 

culturally- and energy resource-rich southeastern New Mexico. Thirty-five different 

industry partners have utilized this voluntary program, contributing more than $3.3 

million in pooled resources to fund key landscape archaeological research and help 

foster balance between resource protection and energy development on public lands.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 15

VOLUNTEERS

The BLM Volunteer Program engages thousands of citizens nationwide each year and routinely 

provides a return of almost 14:1 on agency funds invested in program management, which 

includes volunteer recruitment, training and recognition, as well as staff training and fulfillment of 

legal requirements (e.g., volunteer background checks).

Volunteer contributions to the BLM are highly 

valued and vitally important to achieving 

mission goals. In fiscal year 2010, volunteers 

contributed 1,244,782 hours to BLM lands, 

including national monuments and national 

conservation areas, wild and scenic rivers, 

national scenic and historic trails, and 

wilderness and wilderness study areas.

In 2013, the BLM will develop volunteer training 

programs to expand the use of long-term,

highly-skilled volunteers who work across all 

program areas; expand training of agency 

volunteer coordinators and staff who work with 

volunteers within the BLM; and fully utilize 

Volunteer.gov/gov to conduct targeted 

recruitment of volunteers.

National Public Lands Day

National Public Lands Day (NPLD) is the nation’s largest volunteer workday on behalf of the public lands. Each year, 

the BLM engages the services of about 10,000 NPLD volunteers at more than 125 sites managed by 90+ BLM field 

offices in 18-20 states. Those volunteers regularly produce public lands enhancements valued at more than $1 

million, representing an annual return on investment of 5:1 or greater.

National Public Lands Day is a signature Take Pride in America program, as well as a contributor to the America’s 

Great Outdoors, Let’s Move, and Take It Outside initiatives. As President Obama stated in his 2011 NPLD 

proclamation, “On National Public Lands Day, we take time to appreciate our parks, national forests, wildlife refuges, 

and other public spaces, and we recommit to protecting and restoring them for future generations. This year, 

thousands of dedicated volunteers will continue a proud American tradition by conserving and restoring our public 

lands with local projects across our Nation.”

At California's Big Morongo Canyon Preserve, 

volunteers remove invasive plants.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 16

LANDSCAPE APPROACH TO MANAGING THE PUBLIC LANDS

Unprecedented, widespread environmental and human influences are shaping ecological 

conditions across the public lands, including effects of climate change, catastrophic wildland 

fire, invasive species, population growth, and conventional and renewable energy development. 

Working with state, Federal and nongovernmental partners, the BLM is developing a landscape 

approach to better understand these challenges and support balanced stewardship of the public 

lands. The landscape approach looks across large, connected geographic areas to recognize 

resource conditions, trends, and natural and human influences; seeks opportunities for resource 

conservation, restoration, and development; and identifies important ecological values and 

patterns of change that may not be evident when managing smaller, local land areas.

This broader understanding of the environment will inform, focus, and integrate the BLM’s 

national and local resource management efforts. A landscape approach provides a framework 

to integrate science with management; to direct resources where they are most needed; and to 

adapt management strategies and actions to changing conditions and new information. It also 

provides an important foundation for developing coordinated management strategies with 

partner agencies, stakeholders, and 

American Indian Tribes.

The landscape approach consists of five 

interconnected actions and is a multi-year 

implementation strategy. The five 

components are shown on the diagram to 

the right and include rapid ecoregional 

assessments, ecoregional direction; field 

implementation, monitoring for adaptive 

management, and science integration.

Rapid Ecoregional Assessments (REAs), 

will synthesize existing information 

(including non-BLM data) about resource 

conditions and trends; highlight and map 

areas of high ecological value; gauge potential risks from stressors including climate change; 

map areas that have high energy development potential and relatively low ecological value; and 

establish landscape-scale baseline ecological data to gauge the effect and effectiveness of 

future management actions.

Ecoregional Direction will use the results of the assessments and input from BLM staff and 

partners to identify potential focal areas on public lands for resource conservation, restoration, 

development, and further data gathering. In 2012 the BLM will develop Ecoregional Direction for 

the seven ecoregions where REAs were initiated in FY2010. In 2013, such direction will be 

developed for an additional 2 ecoregions.

Field Implementation puts the management strategies identified in ecoregional direction into 

practice on-the-ground, including finer-scaled assessments, land use plan amendments, use 

authorizations, land treatments, and native plant material development.

Monitoring for Adaptive Management standardizes data collection across the BLM and provides

for consistent, high-quality, quantitative data essential for informed decision-making and 
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 17

adaptive management. The BLM’s Assessment, Inventory, and Monitoring strategy (AIM) is the 

framework for this data collection.

Science integration informs sound land management decision-making. The BLM uses the best 

available science throughout the process from initiating the REAs to adaptively monitoring the 

results of the implementation. This includes identifying new research needs; and synthesizing,

assessing, and modifying the available information.

There are numerous challenges in addressing large-scale stressors to land health, including:

• Managing with uncertainty: Traditionally, resource managers have used known resource 

“reference” conditions to help guide their management activities. The recognition that 

reference conditions are not static and will evolve has added a new dimension of 

uncertainty into resource management. Managers are learning how to address this 

increased uncertainty in their plans, environmental impact analyses, use authorizations, 

and project designs.

• Managing resources across ownerships and jurisdictions: Traditionally, resource 

managers have focused on activities within their own administrative units. To effectively 

address the impacts of land health stressors, resource managers must develop the 

capacity to work across jurisdictions. The BLM has learned how to effectively work 

across jurisdictions through the strategies implemented in the Healthy Landscapes (HL) 

program. This requires a fundamental change in business practices: it not only requires 

working across multiple units within the same agency, but also requires coordination with 

other agencies, other states, and across international borders to evaluate effects at 

multiple geographic scales. Multi-year HL programs of work establish long-term, 

landscape scale, collaborative efforts that work to leverage cooperative solutions and 

funding across ownerships and jurisdictions at a landscape (not project) level.

• Standardizing and integrating data: The ability to collect, consolidate, and share 

geospatial information about resource conditions, change agents such as invasive 

species and wildland fire, and on-the-ground management activities is a critical part of 

this effort. Without the ability to compile and correlate such information, it is extremely 

difficult to either target conservation, restoration, and adaptation strategies, or evaluate 

the effectiveness of such strategies once implemented. The LCCs and on-the-ground 

managers work together to systematically compile and share information at the 

landscape scale about the location and effects of day-to-day management activities.

To help overcome these challenges, the landscape approach involves partnerships and 

collaboration within existing networks such as the LCCs and CSCs. The LCCs and the BLM’s 

landscape approach are complementary efforts that are working together closely and are likely 

to become more fully integrated as they progress.

The Landscape approach is a multi-year program. The BLM anticipates that in each eco-region 

it will take several years to implement this multi-scale approach to management.

• The first year and a half focuses on conducting rapid eco-regional assessments. In these 

assessments, the BLM and its partners evaluate at least three significant ecological 

values (native fish, wildlife, and plants; terrestrial condition; and aquatic condition) and 

four potential change agents (climate change, fire, invasive plants and animals, and 

urban and industrial development).

• The next year is devoted to developing proposed regional management strategies to 

respond to the assessment information.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 18

• The next three to ten years are devoted to implementing planned actions and to 

effectiveness monitoring.

General Guidance about BLM’s Landscape Approach to Managing the Public Lands can be 

found in the following locations: 

• Climate Change: BLM’s 

Response http://www.blm.gov/wo/st/en/prog/more/climatechange/intro.html

• The BLM’s Proposed Landscape Approach for Managing the Public 

Lands http://www.blm.gov/wo/st/en/prog/more/climatechange/landscapeapproach.html

• Rapid Ecoregional Assessments 

(REAs) http://www.blm.gov/wo/st/en/prog/more/climatechange/reas.html

Assessment, Inventory and Monitoring (AIM) Strategy

Consistent, high-quality monitoring data is essential for adaptive management. The BLM is modernizing its 

monitoring and mapping programs to meet this critical information requirement. The BLM’s Assessment, 

Inventory, and Monitoring (AIM) Strategy will standardize data collection and retrieval so information is 

comparable over time, and can be readily accessed and shared. The goal of the AIM Strategy is to provide 

the information needed to understand resource conditions and trends, and to evaluate and refine 

implementation actions. In addition, the BLM is implementing its Geospatial Services Strategic Plan, which 

will provide the high quality mapping products needed to develop and support resource management 

strategies and decisions.

The AIM strategy, initiated in 2005, supports projects which will enhance the BLM’s ability to integrate data 

collection activities across offices, jurisdictions, and among its Federal and non-federal partners. Through its 

AIM strategy, the BLM has funded many projects in partnership with: the Jornada Experimental Range (New 

Mexico State University), the Heinz Center, Defenders of Wildlife, the Nature Conservancy, the Sustainable 

Rangelands Roundtable, USGS, USFS, NRCS, USF&W, Joint Fire Science Program, LANDFIRE, and many 

others.

AIM projects have resulted in interagency cooperation to establish core indicators useful to determine the 

trend and condition of grassland/shrubland ecosystems. These efforts have also led to the adoption of a 

West-wide, scalable, unbiased sampling framework to establish data collection points to inform land cover 

condition and trend at the landscape and regional level. This sampling framework can also be intensified to 

collect information for local decisions, fulfilling an ongoing effort of the AIM Strategy to leverage data 

collection for multiple uses and answer questions at multiple scales.

The AIM Strategy implementation demonstrates the BLM’s continued commitment to improve access to, and 

the analytical capabilities of, resource data and administrative data.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 19

Seven Rapid Ecoregional Assessments (REAs) were initiated in 2010, for the Central Basin and Range, 

Mojave Basin and Range, Sonoran Desert, Northwestern Plains, Middle Rockies, and Colorado Plateau in 

the continental U.S., and the Seward Peninsula-Nulato Hills-Kotzebue Lowlands in Alaska. These 

ecoregions cover over 400 million acres of public and non-public lands. Three additional REAs were initiated 

in 2011: Wyoming Basins, Northern Great Basin, and Yukon Lowlands-Kuskokwim Mountains – Lime Hills 

covering approximately 300 million acres of land. Depending in part on contributions from other agencies, in 

FY 2012 and 2013 two to three REAs will be initiated each year. The BLM’s REAs are geographically 

nested within the Landscape Conservation Cooperatives (LCCs) and data from them can serve to inform 

large portions of the LCC geography.
Bureau of Land Management 2013 Budget Justifications

Chapter V – Crosscutting Programs Page V - 20

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Bureau of Land Management 2013 Budget Justifications

Chapter VI – Budget at a Glance Page VI - 1

BUDGET AT A GLANCE

(Dollars in Thousands)

2011 

Actual

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2013 

President's 

Budget

Appropriation: Management of Lands and Resources

Land Resources

Soil, Water & Air Management 62,989 46,229 +248 +0 -2,000 44,477

Youth in the Great Outdoors [-2,500]

Klamath Basin Restoration [+500]

Range Management 76,915 87,392 +724 +0 -15,789 72,327

Grazing Permit Renewal & Monitoring [-15,789]

Grazing Permit Administration Fees 0 0 +0 +0 +6,500 6,500

Grazing Permit Administration Offset 0 0 +0 +0 -6,500 -6,500

Public Domain Forest Management 9,945 9,714 +57 +0 -3,453 6,318

General Program Decrease [-3,453]

Riparian Management 22,805 22,682 +214 +0 +0 22,896

Cultural Resources Management 16,816 16,105 +139 +0 +1,081 17,325

General Program Increase - America's Great Outdoors [+1,081]

Wild Horse & Burro Management 75,753 74,888 +180 +0 +2,000 77,068

Research & Development: Contraception/Population Control [+2,000]

Activity Total, Land Resources 265,223 257,010 +1,562 +0 -18,161 240,411

Wildlife & Fisheries Management

Wildlife Management 37,430 36,914 +261 +0 +15,000 52,175

Sage Grouse Conservation Activities [+15,000]

Fisheries Management. 13,599 13,333 +107 +0 +0 13,440

Activity Total, Wildlife & Fisheries Management 51,029 50,247 +368 +0 +15,000 65,615

Threatened & Endangered Species Management 22,159 21,633 +179 +0 +0 21,812

Recreation Management

Wilderness Management 19,664 18,392 +176 +0 +0 18,568

Recreation Resource Management 49,153 49,074 +448 +0 +2,200 51,722
Bureau of Land Management 2013 Budget Justifications

Chapter VI – Budget at a Glance Page VI - 2

2011 

Actual

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2013 

President's 

Budget

NLCS-Wild and Scenic Rivers - America's Great Outdoors [+400]

NLCS-Nat'l Scenic and Historical Trails - America's Great Outdoors [+700]

Off-Highway Vehicle Management - America's Great Outdoors [+1,100]

Activity Total, Recreation Management 68,817 67,466 +624 +0 +2,200 70,290

Energy & Minerals Management

Oil & Gas Management 70,130 72,466 +523 -2,000 -24,934 46,055

Transfer Geothermal Funds to Renewable Energy Subactivity -2,000

General Program Increase: Leasing, Oversight and Environmental 

Studies [+8,016]

Leasing Reform [+5,000]

Decrease Base Funding for inspections/shift cost to fees [-37,950]

APD Fees +45,500 +32,500 +0 +0 +0 +32,500

APD Offset -31,228 -32,500 +0 +0 +0 -32,500

O&G Inspection Fee +47,950 47,950

O&G Inspection Fee - offsetting Coll -47,950 -47,950

Coal Management 9,724 7,043 +86 +0 +2,400 9,529

Inspections and Enforcement [+2,400]

Other Mineral Resources Management 10,597 8,402 +100 +0 +2,000 10,502

Inspections and Enforcement [+2,000]

Renewable Energy [21,735] 19,703 +121 +2,000 +5,000 26,824

Transfer Geothermal Funds from Oil & Gas Management +2,000

General Program Increase: Environmental Studies and Geothermal 

Management [+5,000]

Activity Total, Energy & Minerals Management 104,723 107,614 +830 +0 -15,534 92,910

Realty & Ownership Management

Alaska Conveyance 29,108 29,061 +119 +0 -12,439 16,741

General Program Decrease [-12,439]

Cadastral Survey 12,392 11,996 +109 +0 +0 12,105

Land & Realty Management 56,400 32,605 +297 +3,000 +0 35,902

Transfer Base Funding from Land & Resources Information System +3,000

Activity Total, Realty & Ownership Management 97,900 73,662 +525 +3,000 -12,439 64,748
Bureau of Land Management 2013 Budget Justifications

Chapter VI – Budget at a Glance Page VI - 3

2011 

Actual

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2013 

President's 

Budget

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

Communication Site Management Offset -2,000 -2,000 +0 +0 +0 -2,000

Resource Protection & Maintenance

Resource Management Planning 42,426 38,060 +322 +0 +4,366 42,748

High Priority Planning Efforts [+4,366]

Abandoned Mine Lands [15,929] 19,819 +84 +0 -2,000 17,903

General Program Decrease [-2,000]

Resource Protection & Law Enforcement 27,686 27,024 +157 +0 +0 27,181

Hazardous Materials Management 17,028 16,641 +117 +0 +0 16,758

Activity Total, Resource Protection & Maintenance 87,139 101,544 +680 +0 +2,366 104,590

Transportation & Facilities Maintenance

Operations Maintenance 6,047 0 +0 +0 +0 0

Annual Maintenance 31,879 0 +0 +0 +0 0

Deferred Maintenance & Capital Improvements 34,429 29,960 +67 +1,039 +0 31,066

Transfer from O&C Account +1,039

Annual Maintenance & Operations Costs [37,926] 41,160 +319 +0 +0 41,479

Activity Total, Trans. & Fac. Maintenance 72,355 71,120 +386 +1,039 +0 72,545

Nat'l Landscape & Conservation System

Nat'l Monuments & Nat'l Conservation Areas 31,870 31,819 +296 +0 +3,000 35,115

General Program Increase - America's Great Outdoors [+3,000]

Land & Resource Information Systems 16,697 15,827 +0 -15,827 +0 0

Transfer Base Funding to Information Technology Management and 

Land & Realty Management -15,827

Challenge Cost Share 1,202 7,455 +27 +0 +0 7,482

Workforce & Organizational Support

Information Systems Operations 15,343 14,673 +0 -14,673 +0 0

Transfer Base Funding to Information Technology Management -14,673

Administrative Support 50,287 49,130 +396 +0 +0 49,526
Bureau of Land Management 2013 Budget Justifications

Chapter VI – Budget at a Glance Page VI - 4

2011 

Actual

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2013 

President's 

Budget

Bureauwide Fixed Costs 91,307 91,161 +4,912 +0 +3,252 99,325

Realign Base Funding [+3,252]

Information Technology Management 0 0 +148 +27,500 +0 27,648

Transfer Base Funding from Information Systems Operation +14,673

Transfer Base Funding from Land & Resources Information System +12,827

Activity Total, Workforce & Organ. Support 156,937 154,964 +5,456 +12,827 +3,252 176,499

Mining Law Administration 36,696 39,696 +0 +0 +0 39,696

Mining Law Administration Offset -36,696 -39,696 +0 +0 +0 -39,696

Transfers - Service First Co-location -22

Total, Management of Lands & Resources * 976,029 960,361 +10,933 +1,039 -20,316 952,017

Appropriation: Construction

Construction 4,617 3,570 +0 +0 -3,570 0

Eliminate Program [-3,570]

Total, Construction 4,617 3,570 +0 +0 -3,570 0

Appropriation: Land Acquisition

Land Acquisition 18,584 18,969 +0 +0 +10,108 29,077

Collaborative Landscape Acquisition Projects [+5,984]

Acquire Hunting and Fishing Access Easements [+2,500]

General Program Increase [+1,624]

Emergencies & Hardships 1,497 1,498 +0 +0 +0 1,498

Acquisition Management 1,875 1,877 +17 +0 +1,106 3,000

General Program Increase [+1,106]

Total, Land Acquisition 21,956 22,344 +17 +0 +11,214 33,575

Appropriation: Oregon & California Grant Lands

Western OR Construction & Acquisition

Acquisition 314 310 +3 +0 +0 313

Activity Total, Construction & Acquisition 314 310 +3 +0 +0 313

Western OR Transportation & Facilities Maintenance
Bureau of Land Management 2013 Budget Justifications

Chapter VI – Budget at a Glance Page VI - 5

2011 

Actual

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2013 

President's 

Budget

Operations 2,120 2,081 +0 +0 -2,081 0

Create new Operations and Annual Maintenance Subactivity [-2,081]

Annual Maintenance 7,977 7,864 +0 +0 -7,864 0

Create new Operations and Annual Maintenance Subactivity [-7,864]

Deferred Maintenance 1,039 1,039 +0 -1,039 +0 0

Transfer to MLR Account [-1,039]

Operations and Annual Maintenance [10,097] [9,945] +85 +0 +9,945 10,030

Create new Operations and Annual Maintenance Subactivity [+9,945]

Activity Total, Trans. & Facilities Maintenance 11,136 10,984 +85 -1,039 +0 10,030

Western OR Resources Management

Forest Management 31,666 32,060 +301 +0 +1,500 33,861

Increase Base Funding for Secretary's Western Oregon Strategy [+1,500]

Reforestation & Forest Development 24,038 23,622 +150 +0 -1,211 22,561

General Program Decrease [-1,211]

Other Forest Resources 37,472 36,616 +330 +0 +0 36,946

Resource Management Planning 3,753 5,601 +34 +0 +0 5,635

Activity Total, Resources Management 96,929 97,899 +815 +0 +289 99,003

Western OR Information & Data Systems 2,124 1,923 +18 +0 +0 1,941

Activity Total, Information & Data Systems 2,124 1,923 +18 +0 +0 1,941

Western OR Nat'l Landscape Conservation System 831 748 +8 +0 +0 756

Activity Total, Nat'l Landscape Cons. Systems 831 748 +8 +0 +0 756

Total, Oregon & California Grant Lands 111,334 111,864 +929 -1,039 +289 112,043

Appropriation: Range Improvements

Public Lands Improvement 7,873 7,873 +0 +0 +0 7,873

Farm Tenant Act Lands Improvement 1,527 1,527 +0 +0 +0 1,527

Administrative Expenses 600 600 +0 +0 +0 600

Total, Range Improvements 10,000 10,000 +0 +0 +0 10,000

Service Charges, Deposits, & Forfeitures 30,813 31,063 +0 +0 +0 31,053

Service Charges, Deposits, & Forfeitures Offset -30,813 -31,063 +0 +0 +0 -31,053
Bureau of Land Management 2013 Budget Justifications

Chapter VI – Budget at a Glance Page VI - 6

2011 

Actual

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2013 

President's 

Budget

Miscellaneous Trust Funds 25,435 19,700 +0 +0 +0 19,700

Total, All Appropriations 1,149,371 1,127,839 +11,879 +0 -12,383 1,127,335

* 2011 Actual amount for MLR reflects a 2011 Enacted level of $961,779,000, adjusted for net transfers ($-22,000) and an increase of $14,272,000 

to adjust for actual APD Fee Collections of $31,228,000. 
Bureau of Land Management 2013 Budget Justifications

Chapter VII – Collections Page VII - 1

COLLECTIONS

BLM Collections, 2010 - 2013 ($000)

Collection Source 2010

Actual

2011

Actual

2012

Estimated

2013

Estimated

Sale of Public Lands 28,282 20,808 68,080 137,492

Miscellaneous Filing Fees 21 53 37 37

Mineral Leasing National Grasslands 2,211 2,237 2,225 2,225

Grazing Fees & Land Utilization Project Lands 12,568 12,930 12,755 12,955

Timber Sales & Vegetative Material 18,178 18,888 18,090 17,380

Recreational Use Fees 16,648 17,398 17,500 18,000

Earnings on Investments 3,350 2,585 0 1,180

Sale of Helium 176,456 201,261 174,105 174,900

Mining Claim & Holding Fees 56,564 62,646 55,605 55,605

Service Charges, Deposits and Forfeitures 28,101 30,813 31,063 31,053

Application for Permit to Drill Fees 27,142 31,227 32,500 32,500

Grazing Administrative Processing Fees 0 0 0 6,500

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

Other Collections 86,039 77,553 77,959 96,189

Total 455,560 478,399 489,919 633,966

*Note: The 2013 President’s Budget proposes to impose a $4/acre fee on non-producing oil and gas leases, both onshore and on 

the Outer Continental Shelf. The estimate of collections from onshore leases in 2013 is $5 million. The Office of Natural Resources 

Revenue (ONRR) will collect these revenues and is therefore reporting those collections in the ONRR Budget Justification. Thus, 

they are not included here.

2013 COLLECTIONS

In 2013, the Bureau of Land Management (BLM) will collect an estimated total of $634 million in 

revenue. Revenue is collected by BLM from sources such as the sale of land and materials, 

grazing fees, timber sales, recreation use fees, and various filing fees. These collections assist 

State and local governments, support all programs funded from the General Fund of the U.S. 

Treasury, and offset charges for program operations where certain fees collected can be 

retained by the BLM. 

In addition, in 2013, the Office of the Natural Resources Revenue (ONRR) will collect an 

estimated $4.4 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). 
Bureau of Land Management 2013 Budget Justifications

Chapter VII – Collections Page VII - 2

Collections from some sources, such as grazing fees, are expected to remain relatively level 

over the next two years. The amount of revenue expected to come from other sources varies 

for the reasons described below. 

Sales of Public Land – This category includes receipts from the sale of public land, including 

land sales in Clark County, Nevada. Excluded from this collection source are the sales of 

timber and vegetative materials from the public domain land, sale of land and timber and 

vegetative materials from the Oregon & California Grant Lands and Coos Bay Wagon Road 

Lands, sale of land from Land Utilization project lands, sale of land and materials from 

reclaimed lands (reserved or withdrawn), and sale of town sites and reclamation projects. 

The main sources of collections in the Sale of Public Land category are described below. The 

collection amounts described here represent 100 percent of the funds collected. In many cases, 

portions of the funds collected are distributed to state governments, to Treasury, or other 

entities, before the remaining portion is distributed to the BLM. The Management of Lands and 

Resources, Permanent Operating Funds, Service Charges, Deposits, and Forfeitures, 

Miscellaneous Permanent Payments, and Miscellaneous Trust Funds chapters describe the 

portions allocated to the BLM and how BLM uses the funds. 

• Southern Nevada Public Land Management Act (SNPLMA) Sales Proceeds – The 

SNPLMA, as amended, provides a process for orderly sale of certain public lands in Clark 

County, Nevada, near the city of Las Vegas. Approximately 50,000 acres of public land are 

within the disposal boundary area. Receipts generated by land sales under this statute 

were larger than anticipated in earlier budget estimates. The BLM has conducted land sales 

for nine years under the authority of this statute. Collections in 2010 and 2011 were 

$11,867,000 and $6,833,000 respectively. Sales in 2012 are projected to produce 

$54,720.000. The increase is due to a one 485-acre modified competitive sale, a 5 acres 

direct sale, and a 1.25 modified competitive sale, all of which are expected to be completed 

in FY2012. Estimated collections for 2013 are expected to be $116,900,000. The increase 

is due to a 130-acre modified competitive sale. Collections are reported when payments 

are received regardless of when sales are held and the estimates make allowance for the 

normal lag of 180 days between sales and collections. For more information see SNPLMA 

Act, P.L. 105-263, as amended by P.L. 107-282.

• Southern Nevada Public Land Management and Lincoln County – Earnings on 

Investments – The SNPLMA authorizes the Secretary to manage the collections account 

for the purposes set out above, and is also authorized to use interest generated from the 

above-mentioned funds. BLM is authorized to invest the unspent balance of collections 

from SNPLMA and Lincoln County Lands Act land sale receipts. Earnings on investments 

for 2011 were $2,585,000. Because of low interest rates only a small amount is estimated 

to be collected in 2012 and only $1,180 is estimated in 2013. Projected investment earnings 

take into account: (a) revenue from land sales, (b) earnings on investments, and (c) 

projected outlays. 

• Federal Land Transaction Facilitation Act (FLTFA) – Proceeds from the sale of land 

under the FLTFA, Title II of P.L. 106-248 in 2011 were $1,401,000. Because the authority 

expired in July 2011, the unobligated balance was transferred to the Land and Water 

Conservation Fund as required by law. The 2013 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 
Bureau of Land Management 2013 Budget Justifications

Chapter VII – Collections Page VII - 3

with conducting sales. Estimated collections for 2013 are $5,000,000. The Permanent 

Operating Funds section provides more information on the proposal. Four percent of FLTFA 

collections were paid to the state in which the land was sold. 

• Lincoln County Land Sales – No revenue was collected in 2011 from the sale land under 

the Lincoln County Land Sales Act, P.L. 106-298, as amended. Receipts from smaller sales 

not close to Las Vegas are estimated to be $30,000 and $580,000 in 2012 and 2013, of 

which $4,000 and $87,000 will be paid to the State and County. Five percent of those 

amounts are paid to the State and 15 percent are paid to the County.

• Owyhee Land Acquisition Account – Revenue collected prior to the enactment of 

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 2011 or is estimated to be collected in 

2012. Sales in 2013 are estimated to produce $2,280,000. Four percent of those amounts 

are paid to the State. 

• Washington County, Utah Land Acquisition Account – No revenue was or is estimated 

to be collected in 2011, 2012, or 2013 from the sale land under the Washington County, 

Utah Acquisition Account, P.L. 111-11, (Section 1978). 

• Silver Saddle Endowment Account – No revenue was collected in 2011 from the sale land 

under the Silver Saddle Endowment Account, P.L. 111-11, (Section 2601). In 2012, 

collections are estimated to be $375,000 of which $15,000 will be paid to the State. No 

revenue is estimated to be collected in 2013. Four percent of those amounts are paid to the 

State.

• Carson City Special Account – No revenue was collected in 2011 from the sale of land 

under the Carson City Special Account, P.L. 111-11, (Section 2601). In 2012, collections 

are estimated to be $230,000 of which $25,000 will be paid to the State. No revenue is 

estimated to be collected in 2013.

Miscellaneous Filing Fees – Collections in this category are primarily from fees received for 

filing or recording documents; charges for registration of individuals, firms, or products; and 

requests for approval of transfer of leases or permits under statutory authorities that do not

permit BLM to retain and spend those collections. 

Mineral Leasing-National Grasslands – The Office of Natural Resources Revenue, formerly a 

component of the Minerals Management Service (MMS), is responsible for the collection and 

distribution of most mineral leasing receipts; however, the BLM administers and collects rentals 

from oil and gas pipeline rights-of-way associated with lands leased under the Mineral Leasing 

Act and the Mineral Leasing Act for Acquired Lands. The BLM pays 25 percent of mineral 

leasing collections on acquired lands to counties where the collections were generated. The 

BLM continues to collect first-year rentals and initial bonuses from mineral leasing but deposits 

these receipts directly into 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 
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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.

Timber and Vegetative Material Sales 

• Receipts from the Oregon and California and Coos Bay Wagon Road Grant Lands 

– In 2013, the BLM projects it will collect $16.4 million, mostly from timber receipts from 

Oregon and California and Coos Bay Wagon Road lands. Under current law, the Secure 

Rural Schools and Community Self-Determination Act of 2000, P.L. 106-393, as 

extended and amended by P.L. 110-343, expired in 2011, although a final payment will 

be made in 2012 under that law. The Budget reflects a five-year reauthorization, starting 

in FY2012, of the Secure Rural Schools Act with funding through mandatory U.S. Forest 

Service appropriations. USDA Forest Service will make the Secure Rural Schools 

payments to western Oregon counties. This SRS proposal revises the allocation split 

between the three portions of the program from the current authority emphasizing 

enhancement of forest ecosystems, restoration and improvement of land health and 

water quality and the increase of economic activity. (Please refer to the Miscellaneous 

Permanent Payments section for more information about the Secure Rural Schools 

program and the USDA Forest Service budget for more information on the 

reauthorization proposal.) 

• Timber Receipts from the Public Domain Forest Lands – In 2013, the BLM expects 

to offer for sale 12 million board feet of timber products from public domain lands, and

estimates collections of $960,000 in timber sales receipts from public domain lands. 

Collections from salvage timber sale on public domain lands were $1,960,000 in 2011 

and are estimated to be $850,000 in 2012 and $600,000 in 2013. 

• 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 FS 

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 2011, 

the BLM deposited $107,000 to this fund, and estimates deposits of $30,000 in 2012 and 

$20,000 in 2013. Since the current authority expires on September 30, 2013, the 

Budget includes a proposal seeking permanent authority to enter into stewardship 

contracts. It would provide flexibility to accomplish collaborative restoration work at a 

landscape scale. Please refer to the US Forest Service Justifications for more 

information on the Stewardship Contracting Permanent Authority proposal.

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 2011, 

recreation fee collections were $17,398,000. The BLM anticipates collecting $17,500,000 in 

2012 and $18,000,000 in 2013 under its recreation fee collection authorities. The use of 

Recreation fee collections is described in the Permanent Operating Funds section. 

Naval Oil Shale Reserve – On August 7, 2008, the Secretaries of the Interior and Energy 

certified that sufficient funds have been collected to cover the cost of the cleanup and of 

equipment installed on the oil shale reserve. Because of the certification, no more deposits will 
Bureau of Land Management 2013 Budget Justifications

Chapter VII – Collections Page VII - 5

be made to the Naval Oil Shale Reserve Fund. Instead, revenue from the site will be distributed 

under the Mineral Leasing Act. 

The unappropriated account balance is $76,665,506 which will not change unless new 

legislation is enacted. 

Sales of Helium – The Helium Privatization Act of 1996 requires the DOI to offer for sale a 

portion of the Conservation Helium stored underground at the Cliffside Field north of Amarillo, 

Texas. Sales produced $201,261,000 in 2011. Collections from annual sales are projected to 

be $174,105,000 in 2012 and $174,900,000 in 2013. While authority for the Helium Revolving 

Fund, which pays for the operations of the Helium program, expires in 2015, the Secretary’s 

authority to sell helium does not expire, and collections are expected after that date. This 

category of collections includes “in-kind” crude helium sales to Federal helium suppliers and 

open market sales. Additional information is available in the helium program section.

Mining Claim-Related Fees – The Department of the Interior and Related Agencies 

Appropriations Act for 1989 provided that fees established by the Secretary of the Interior for 

processing actions relating to the administration of the General Mining Laws shall be 

immediately available to BLM for Mining Law Administration program operations. 

Additionally, the Omnibus Budget Reconciliation Act of 1993, P.L. 103-66, (Section 10101)

provided for the annual $100 per claim maintenance fee for unpatented mining claims and sites

that would continue through 1998. The authority has been modified and extended by Interior 

appropriations acts. The law allows a waiver from the fee for those claimants who hold 10 or 

fewer claims. The authority also established a $25 per claim location fee for new claims, to be 

paid at the time of recordation. The law requires that the fee be adjusted for inflation. The 

maintenance fee is currently $140 per claim and the location fee is currently $34 per claim. 

Collections in 2011 were $62,646,000 and are estimated to be $55,605,000 in 2012 and 2013. 

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 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 2011 were $30,813,000 and are estimated to be $31,063,000 in 2012 and $31,053,000 in 

2013. Additional information is included in the Service Charges, Deposits and Forfeitures 

section. 

Application for Permit to Drill Fees – The 2012 Interior, Environment, and Related Agencies 

Appropriations Act authorized the BLM to collect $32,500,000 in fees to be collected when an 

application for a permit to drill for oil and natural gas is submitted. The fee is $6,500 per 

application. Collections are to be credited to the Management of Lands and Resources 

appropriation. The 2013 President’s Budget proposes to continue one-year authority to collect 

these fees, which are estimated at $32,500,000 in 2013. For more information please refer to 

the discussion in the Oil and Gas Management Program. 

Onshore Oil and Gas Lease Inspection Fees – The 2013 Budget includes a new inspection 

fee for onshore oil and gas leases. The fee would support Federal efforts to provide services to

ensure the proper reporting of oil and gas production, protect human safety and the 
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environment, and conserve energy resources. These fees will be credited to the Management 

of Lands and Resources appropriation. The estimate for 2013 is $47,950,000. 

Grazing Administrative Processing Fees – The Budget includes appropriations language for 

a three-year pilot project to allow BLM to recover some of the costs of issuing grazing 

permits/leases on BLM lands. BLM would charge a fee of $1 per Animal Unit Month, which 

would be collected along with current grazing fees. The fee will assist the BLM in processing 

pending applications for grazing permit renewals. During the period of the pilot, BLM would 

work through the process of promulgating regulations for the continuation of the grazing 

administrative fee as a cost recovery fee after the pilot expires. The fees will be credited to the 

Management of Lands and Resources appropriation. The estimate for 2013 is $6,500,000. 

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. 

The estimates for 2012 and 2013 include a planned increase of $10,500,000 and $17,200,000

respectively from wind and solar renewable energy rights-of-way rents. 

Amounts Not Included in Collections – Payments to western Oregon counties under the

Secure Rural Schools and Community Self-Determination Act of 2000, as amended by Public 

Law 110-343, are made partially from receipts produced in those counties in the preceding year. 

Most of the amounts paid, however, are derived from an appropriation from the General Fund. 

Of the total of $40.0 million estimated to be paid to the western Oregon counties for 2011 in 

2012, $28.5 million was is expected to be appropriated from the General Fund. That payment is 

the final payment under the current law.

Secure Rural Schools payments were enacted by P.L. 106-393 for Fiscal Years 2002 through 

2006. They were extended for one year (FY 2007) by Public Law 110-28, May 25, 2007, and 

were extended for Fiscal Years 2008 through 2011 by Public Law 110-343, October 3, 2008. As 

noted above, the Budget reflects a five-year reauthorization, starting in FY 2012, of funding 

through mandatory U.S. Forest Service appropriations. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 1

MANAGEMENT OF

LANDS AND RESOURCES

APPROPRIATIONS LANGUAGE

For necessary expenses for protection, use, improvement, development, disposal, cadastral 

surveying, classification, acquisition of easements and other interests in lands, and performance 

of other functions, including maintenance of facilities, as authorized by law, in the management 

of lands and their resources under the jurisdiction of the Bureau of Land Management, including 

the general administration of the Bureau, and assessment of mineral potential of public lands 

pursuant to Public Law 96–487 (16 U.S.C. 3150(a)), [$961,900,000] $952,017,000, to remain 

available until expended; of which $3,000,000 shall be available in fiscal year [2012] 2013 

subject to a match by at least an equal amount by the National Fish and Wildlife Foundation for 

cost-shared projects supporting conservation of Bureau lands; and such funds shall be 

advanced to the Foundation as a lump-sum grant without regard to when expenses are 

incurred.

In addition, $32,500,000 is for the processing of applications for permit to drill and related use 

authorizations, to remain available until expended, to be reduced by amounts collected by the 

Bureau and credited to this appropriation that shall be derived from $6,500 per new application 

for permit to drill that the Bureau shall collect upon submission of each new application, and in 

addition, $47,950,000 is for conducting oil and gas inspection activities, to remain available until 

expended, to be reduced by amounts collected by the Bureau and credited to this appropriation

that shall be derived from onshore oil and gas inspection fees that the Bureau shall collect, as 

provided for in this Act, and in addition, $6,500,000 is for the processing of grazing permits and 

leases, to remain available until expended, to be reduced by amounts collected by the Bureau 

and credited to this appropriation, which shall be derived by a $1.00 per animal unit month 

administrative fee, as provided for in this Act, and in addition, $39,696,000 is for Mining Law 

Administration program operations, including the cost of administering the mining claim fee 

program[;], to remain available until expended, to be reduced by amounts collected by the 

Bureau and credited to this appropriation from mining claim maintenance fees and location fees 

that are hereby authorized for fiscal year [2012] 2013 so as to result in a final appropriation 

estimated at not more than [$961,900,000] $952,017,000, 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, 2012.)

JUSTIFICATION OF PROPOSED LANGUAGE CHANGES

All changes are based on the Department of the Interior, Environment, and Related Agencies 

Appropriations Act, 2012.

1. $47,950,000 is for conducting oil and gas inspection activities, to remain available until 

expended, to be reduced by amounts collected by the Bureau and credited to this 
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Chapter VIII – Management of Lands and Resources Page VIII - 2

appropriation that shall be derived from onshore oil and gas inspection fees that the

Bureau shall collect, as provided for in this Act,

This provision authorizes the BLM to spend revenues generated by a fee for oil and gas 

inspection activities. The BLM will collect and retain these fees in the Management of 

Lands and Resources account. The appropriations language authorizes the BLM to 

spend the estimated $47,950,000 in fee collections on inspection activities, regardless of 

the amount actually collected. The fee schedule is located in Section 114 of the General 

Provisions and in the Oil and Gas Management Chapter.

2. $6,500,000 is for the processing of grazing permits and leases, to remain available until 

expended, to be reduced by amounts collected by the Bureau and credited to this 

appropriation, which shall be derived by a $1.00 per animal unit month administrative 

fee, as provided for in this Act,

This provision authorizes the BLM to spend revenues generated by a pilot administrative 

processing fee to offset the increased cost of administering the livestock grazing 

program on public lands managed by the BLM. The three-year pilot project would allow 

BLM to recover some of the costs of issuing grazing permits/leases on BLM lands. BLM 

would charge a fee of $1 per Animal Unit Month, which would be collected along with 

current grazing fees. The fee will assist the BLM in processing pending applications for 

grazing permit renewals. During the period of the pilot, BLM would work through the 

process of promulgating regulations for the continuation of the grazing administrative fee 

as a cost recovery fee after the pilot expires. The fees will be credited to the 

Management of Lands and Resources appropriation. The fee schedule is located in 

Section 117 of the General Provisions and in the Rangeland Management Chapter.

APPROPRIATION LANGUAGE CITATIONS

Alaska National Interest Lands Conservation Act, Public Law 96-487 (16 U.S.C. 3150(a))

established the Alaska mineral resource assessment program to assess the oil, gas, and other 

mineral potential on all public lands in the State of Alaska in order to expand the data base with 

respect to the mineral potential of such lands.

AUTHORIZATIONS

General Authorizing Legislation - The following authorize the general activities of the Bureau of Land 

Management or govern the manner in which BLM‘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 
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Chapter VIII – Management of Lands and Resources Page VIII - 3

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.

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 

Provides for the security of dams, facilities and resources under the 

jurisdiction of the Bureau of Reclamation. Authorizes the Secretary of 
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Chapter VIII – Management of Lands and Resources Page VIII - 4

Management Act of 1992 

(P.L. 107-69)

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.

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.
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Chapter VIII – Management of Lands and Resources Page VIII - 5

Specific Authorizing Legislation - In addition to the above laws that provide general authorization and 

parameters, a number of laws authorize specific program activities, or activities in specific or designated 

areas.

 Soil, Water and Air Management

Consolidated 

Appropriations Act, 2005 

(P.L. 108-447) – including 

the authorizations:

• Watershed Restoration Projects (P.L. 106-291,Section 331, as 

amended by P.L. 108-447, Division E, Section 336) - permits the 

Colorado State Forest Service to perform watershed restoration 

and protection services on BLM lands in the State of Colorado 

when similar and complementary work is being performed on 

adjacent state lands.

• Snake River Water Rights Act of 2004(P.L. 108-447, Division J, 

Title X) – Directs BLM to transfer, at the selection of the Nez 

Perce Tribe, certain land managed by the BLM in northern Idaho 

to the Bureau of Indian Affairs to be held in trust for the Tribe. 

Existing rights and uses on the selected lands remain in effect 

until the date of expiration of the lease or permit. The fair market 

value of the parcels of land selected by the Tribe is not to exceed 

$7 million.

Burnt, Malheur, Owyhee, 

and Powder River Basin 

Water Optimization 

Feasibility Study Act of 

2001 (P.L. 107-237)

Authorizes the Secretary of the Interior to conduct feasibility studies 

on water optimization in the Burnt River, Malheur River, Owyhee 

River, and Powder River Basins.

Colorado River Basin 

Salinity Control Act 

Amendment of 1984 (43 

U.S.C. 1593)

Directs the Department to undertake research and develop 

demonstration projects to identify methods to improve the water 

quality of the Colorado River. The amendment requires BLM to 

develop a comprehensive salinity control program, and to undertake 

advanced planning on the Sinbad Valley Unit.

Soil and Water Resources 

Conservation Act of 1977 

(16 U.S.C. 2001)

Provides for conservation, protection and enhancement of soil, 

water, and related resources.

The Clean Air Act of 1990, 

as amended (42 U.S.C. 

7401, 7642)

Requires BLM to protect air quality, maintain Federal and State 

designated air quality standards, and abide by the requirements of 

the State implementation plans.

The Clean Water Act of 

1987, as amended (33 

U.S.C. 1251)

Establishes objectives to restore and maintain the chemical, 

physical and biological integrity of the nation‘s water.

P.L. 107-30 Provides further protections for the watershed of the Little 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
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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.

 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.

Stewardship "End 

Results" Contracting Fund 

- 2003 Omnibus 

Appropriations Bill (P.L. 

108-7), Section 323, 

amended Section 347 of 

the FY 1999 Appropriation 

Omnibus (P.L. 105-277, 

OCT. 21, 1998)

Provides BLM the ability to utilize stewardship contracting as a tool 

for forest and rangeland restoration. The Bureau of Land 

Management may apply the value of timber or other forest products 

removed as an offset against the cost of services received, and 

monies from a contract under subsection (a) may be retained by the 

Forest Service and the Bureau of Land Management and shall be 

available for expenditure without further appropriation at the project 

site from which the monies are collected or at another project site. 

Since the current authority expires on September 30, 2013, the 

Budget includes a proposal seeking permanent authority to enter 

into stewardship contracts. It would provide flexibility to accomplish 

collaborative restoration work at a landscape scale. Please refer to 

the US Forest Service Justifications for more information on the 

Stewardship Contracting Permanent Authority proposal.

 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 
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Chapter VIII – Management of Lands and Resources Page VIII - 7

implementation of cooperative agreements with State agencies; and 

establishment of integrated management systems to control 

undesirable plant species.

Noxious Weed Control Act 

of 2004 (P.L. 108-412)

Establishes a program to provide assistance through States to 

eligible weed management entities to control or eradicate harmful, 

nonnative weeds on public and private lands.

Carlson-Foley Act of 1968 

(42 U.S.C. 1241-1243)

Authorizes BLM to reimburse States for expenditures associated 

with coordinated control of noxious plants.

 Cultural Resources Management

P.L. 107-346 To convey certain property to the City of St. George, Utah, in order 

to provide for the protection and preservation of certain rare 

paleontological resources on that property, and for other purposes.

The Federal Cave 

Resource Protection Act 

of 1988 (16 U.S.C. 4301)

Provides for the protection of caves on lands under the jurisdiction 

of the Secretary, and the Secretary of Agriculture. Establishes 

terms and conditions for use permits, and penalties for violations. 

The Historic Sites Act (16 

U.S.C. 461)

Declares national policy to identify and preserve historic sites, 

buildings, objects, and antiquities of national significance, providing 

a foundation for the National Register of Historic Places.

The National Historic 

Preservation Act of 1966, 

as amended (16 U.S.C. 

470)

Expands protection of historic and archaeological properties to 

include those of national, State and local significance. It also directs 

Federal agencies to consider the effects of proposed actions on 

properties eligible for or included in the National Register of Historic 

Places.

The Archaeological 

Resources Protection Act 

of 1979, as amended (16 

U.S.C. 470a, 470cc and 

470ee)

Requires permits for the excavation or removal of Federally 

administered archaeological resources, encourages increased 

cooperation among Federal agencies and private individuals, 

provides stringent criminal and civil penalties for violations, and 

requires Federal agencies to identify important resources vulnerable 

to looting and to develop a tracking system for violations.

The Chacoan Culture 

Preservation Act of 1980 

(16 U.S.C. 410; ii)

Provides for preservation, protection, research, and interpretation of 

the Chacoan system, including 33 archaeological protection sites, 

located throughout the San Juan Basin on public, State, Indian and 

private lands.

The Native American 

Graves Protection and 

Repatriation Act of 1990 

(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.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 8

 Wild Horse and Burro Management

Wild Free-Roaming Horse 

and Burro Act of 1971 

(P.L. 92-195), as amended

The Secretary is authorized and directed to protect and manage 

wild free-roaming horses and burros as components of the public 

lands, and he may designate and maintain specific ranges on public 

lands as sanctuaries for their protection and preservation, where the 

Secretary after consultation with the wildlife agency of the State 

wherein any such range is proposed and with the Advisory Board 

established in section 7 of this Act deems such action desirable. 

The Secretary shall manage wild free-roaming horses and burros in 

a manner that is designed to achieve and maintain a thriving natural 

ecological balance on the public lands.

Federal Land Policy and 

Management Act of 1976, 

as amended (43 U.S.C. 

1701 et seq.)

For the purpose of furthering knowledge of wild horse and burro 

population dynamics and their interrelationship with wildlife, forage 

and water resources, and assisting the Secretary in making his 

determination as to what constitutes excess animals, the Secretary 

shall contract for a research study of such animals with such 

individuals independent of 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.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 9

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.

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 Provides for the designation and preservation of Wilderness Areas.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 10

1964 (16 U.S.C. 1131 et 

seq.)

 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 

Provides for competitive leasing of oil and gas in the National 

Petroleum Reserve in Alaska.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 11

Act for 1981 (42 U.S.C. 

6508)

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.

 Coal Management

The Surface Mining 

Control and Reclamation 

Act of 1977 (30 U.S.C. 

1201 et seq.)

Provides that lands may be declared unsuitable for surface coal 

mining where significant adverse impacts could result to certain 

wildlife species.

The Federal Coal Leasing 

Amendments Act of 1976 

(30 U.S.C. 201, et seq.)

Requires competitive leasing of coal on public lands, and mandates 

a broad spectrum of coal operations requirements for lease 

management.

The Mining and Minerals 

Policy Act of 1970 (30 

U.S.C. 21a)

Establishes policy of fostering development of economically stable 

mining and minerals industries, their orderly and economic 

development, and studying methods for disposal of waste and 

reclamation.

The Act of March 3, 1879, 

as amended (43 U.S.C. 

31(a))

Provides for the inventory and classification of the public lands, and 

examination of the geologic structure, mineral resources, and 

products of the national domain.

Other Mineral Resources

Mineral Materials Act of 

1947 (30 U.S.C. 601)

Authorizes the BLM to sell sand, gravel, crushed stone, clay and 

pumice at fair market value and to grant free-use permits to 

Government agencies and nonprofit organizations, so long as public 

land resources, the environment and the public are protected.

The Multiple Surface Use 

Act (30 U.S.C. 611) 

Specified that sand, gravel, and certain other minerals were no 

longer locatable under the General Mining Law of 1872 but were 

subject to disposal by sale under the Materials Act of 1947.

 Alaska Conveyance
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 12

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.

 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.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 13

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.

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, 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 14

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 

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.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 15

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.

 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 

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.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 16

1986 (42 U.S.C. 9601-9673)

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. 

 National Landscape Conservation System

The King Range National 

Conservation Area Act of 

1970, as amended (P.L. 91-

476) (16 U.S.C. 460y)

Provides for management and development of the King Range 

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 

Establishes the Snake River Birds of Prey National Conservation 

Area, Idaho, to provide for the conservation, protection, and 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 17

Conservation Area Act of 

1993 (P.L. 103-64) (16 USC 

460iii)

enhancement of raptor populations, habitats, and associated natural 

resources and of the scientific, cultural, and educational resources 

of the public lands. Requires the Secretary of the Interior to finalize 

a new comprehensive management plan for the Area. Authorizes 

the Secretary, acting through the Bureau of Land Management, to 

establish a visitor‘s center to interpret the history and geological, 

ecological, natural, cultural and other resources of the Area and 

biology of the raptors and their relationships to humans.

An Act to Establish the 

Red Rock Canyon 

National Conservation 

Area in Nevada (P.L. 101-

621) as amended by 107-

282 (16 U.S.C. 460ccc)

Provides for the conservation, protection, and enhancement of 

cultural and natural resources values by the BLM within the Red 

Rock Canyon National Conservation Area.

An Act to Establish the El 

Malpais National 

Monument and the El 

Malpais National 

Conservation Area in New 

Mexico, P.L. 100-225 (16 

U.S.C. 460uu 21)

Provides for the protection and management of natural and cultural 

resource values within the El Malpais National Conservation Area 

by the BLM.

An Act to Provide for the 

Designation and 

Conservation of Certain 

Lands in Arizona and 

Idaho(P.L. 100-696) (16 

U.S.C. 460xx)

Establishes the San Pedro Riparian National Conservation Area in 

Arizona and provides for management and development for 

recreation and other multiple-use purposes.

Black Canyon of the 

Gunnison National Park 

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.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 18

Las Cienegas National 

Conservation Area Act 

(P.L. 106-538) (16 U.S.C. 

460ooo) 

Establishes the Las Cienegas National Conservation Area in 

Arizona, to be managed by the Secretary, acting through the 

Director of the Bureau of Land Management.

Santa Rosa and San 

Jacinto Mountains 

National Monument Act of 

2000 (P.L. 106-351) (16 

U.S.C. 431)

Establishes the Santa Rosa and San Jacinto Mountains National 

Monument in California, to be managed by the Secretary, acting 

through the Director of the Bureau of Land Management.

Steens Mountain 

Cooperative Management 

and Protection Act of 2000 

(P.L. 106-399) (16 U.S.C. 

460nnn)

Establishes the Steens Mountain Cooperative Management and 

Protection Area in Oregon, to be managed by the Secretary, acting 

through the Director of the Bureau of Land Management.

Presidential Proclamation 

6920 of 1996

Established the Grand Staircase - Escalante National Monument, to 

be managed by the Secretary of the Interior, acting through the 

Director of the Bureau of Land Management. 

Presidential Proclamation 

7265 of 2000

Established the Grand Canyon - Parashant National Monument. 

The Secretary of the Interior shall manage the monument through 

the Bureau of Land Management and the National Park Service. 

The Bureau of Land Management shall have primary management 

authority for those portions of the Monument outside of the Lake 

Mead National Recreation Area. 

Presidential Proclamation 

7264 of 2000

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.)

Provides for the development and management of certain rivers. 

Authorizes the Secretary to exchange or dispose of suitable 

Federally-owned property for non-Federal property within the 

authorized boundaries of any Federally-administered component of 

the National Wild and Scenic Rivers System.

The National Trails 

System Act of 1968, as 

amended (16 U.S.C. 1241-

1249)

Establishes a national trails system and requires that Federal rights 

in abandoned railroads be retained for trail or recreation purposes, 

or sold with the receipts to be deposited in the LWCF.

The National Parks and 

Recreation Act of 1978 (16 

U.S.C. 1242-1243)

Establishes a number of national historic trails which cross public 

lands.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 19

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.

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.

 Other Authorizations
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 20

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 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 21

Summary of Requirements

(Dollars in Thousands)

2011 Actual 2012 Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes (+/-)

2013 President's 

Budget

Change From 

2012 Enacted

Total 

FTE Amount

Total 

FTE Amount FTE Amount FTE Amount FTE Amount

Management of Lands and 

Resources

Land Resources

Soil, Water & Air Mgt 322 62,989 248 46,229 +248 +0 +0 -2,000 248 44,477 0 -1,752

Range Mgt 642 76,915 762 87,392 +724 +0 -120 -15,789 692 72,327 -120 -15,065

Grazing Admin. Fee Collection 

(Proposed) +0 +0 +50 +6,500 50 6,500 +50 +6,500

Grazing Admin. Fee Collection 

Offset (Proposed) +0 +0 -50 -6,500 -50 -6,500 0 -6,500

Forestry Mgt 84 9,945 84 9,714 +57 +0 -34 -3,453 50 6,318 -34 -3,396

Riparian Mgt 181 22,805 181 22,682 +214 +0 +0 +0 181 22,896 0 +214

Cultural Resources Mgt 121 16,816 121 16,105 +139 +0 +0 +1,081 121 17,325 0 +1,220

Wild Horse and Burro Mgt 174 75,753 174 74,888 +180 +0 +0 +2,000 174 77,068 0 +2,180

Total, Land Resources 1,524 265,223 1,570 257,010 +1,562 +0 -104 -18,161 1,466 240,411 -104 -16,599

Wildlife & Fisheries

Wildlife Mgt 222 37,430 222 36,914 +261 +0 +3 +15,000 225 52,175 +3 +15,261

Fisheries Mgt 103 13,599 103 13,333 +107 +0 +0 +0 103 13,440 0 +107

Total, Wildlife & Fisheries 325 51,029 325 50,246 +368 +0 +3 +15,000 328 65,615 +3 +15,368

Total, Threatened & Endangered 

Species 164 22,159 164 21,633 +179 +0 +0 164 21,812 0 +179

Recreation

Wilderness Mgt 164 19,664 159 18,392 +176 +0 +0 +0 159 18,568 0 +176

Recreation Resource Mgt 392 49,153 392 49,074 +448 +0 +2 +2,200 394 51,722 +2 +2,648

Total, Recreation 556 68,817 551 67,466 +624 +0 +2 +2,200 553 70,290 +2 +2,824
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 22

Summary of Requirements

(Dollars in Thousands)

2011 Actual 2012 Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes (+/-)

2013 President's 

Budget

Change From 

2012 Enacted

Total 

FTE Amount

Total 

FTE Amount FTE Amount FTE Amount FTE Amount

Energy & Minerals

Oil and Gas Mgt* 522 70,130 553 72,466 +523 -2,000 -103 -24,934 450 46,055 -103 -26,411

O&G APD Proc. Fund 425 45,500 346 32,500 +0 +0 +0 +0 346 32,500 0 0

Offsetting Collections 0 -31,228 0 -32,500 +0 +0 +0 +0 0 -32,500 0 0

O&G Inspection Fees 0 0 0 0 +0 +0 +208 +47,950 208 47,950 +208 +47,950

Offsetting Collections 0 0 0 0 +0 +0 -0 -47,950 0 -47,950 0 -47,950

Coal Mgt 78 9,724 56 7,043 +86 +0 +20 +2,400 76 9,529 +20 +2,486

Other Mineral Resources Mgt 90 10,597 71 8,402 +100 +0 +17 +2,000 88 10,502 +17 +2,100

Renewable Energy [106] [21,735] 106 19,703 +121 +2,000 +47 +5,000 153 26,824 +47 +7,121

Total, Energy & Minerals 1,115 104,723 1,132 107,614 +830 +0 -400 -15,534 1,321 92,910 +189 -14,704

Realty and Ownership

Alaska Conveyance 165 29,108 165 29,061 +119 +0 -60 -12,439 105 16,741 -60 -12,320

Cadastral Survey 97 12,392 96 11,996 +109 +0 +0 +0 96 12,105 0 +109

Land and Realty Mgt 406 56,400 300 32,605 +297 +3,000 +0 +0 300 35,902 0 +3,297

Total, Realty and Ownership 668 97,900 561 73,662 +525 +3,000 -60 -12,439 501 64,748 -60 -8,914

Communications Sites Mgt

Fee Collection 20 2,000 19 2,000 +0 +0 +0 +0 19 2,000 0 0

Offsetting Fees 0 -2,000 0 -2,000 +0 +0 +0 +0 0 -2,000 0 0

Total, Communications Sites Mgt 20 0 19 0 +0 +0 +0 +0 19 0 0 0

Resource Protection & Maintenance

Resource Mgt Planning 254 42,426 254 38,060 +322 +0 +0 +4,366 254 42,748 0 +4,688

Abandoned Mine Land 

Management 0 [15,929] 74 19,819 +84 +0 +0 -2,000 74 17,903 0 -1,916
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 23

Summary of Requirements

(Dollars in Thousands)

2011 Actual 2012 Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes (+/-)

2013 President's 

Budget

Change From 

2012 Enacted

Total 

FTE Amount

Total 

FTE Amount FTE Amount FTE Amount FTE Amount

Resource Protection & Law 

Enforcement 138 27,686 138 27,024 +157 +0 +0 +0 138 27,181 0 +157

Hazardous Materials Mgt 102 17,028 102 16,641 +117 +0 +0 +0 102 16,758 0 +117

Total, Resource Protection & 

Maintenance 494 87,139 568 101,544 +680 +0 +0 +2,366 568 104,590 0 +3,046

Transportation & Facilities 

Maintenance

Operations 44 6,047 0 0 +0 +0 +0 +0 0 0 0 0

Annual Maintenance 230 31,879 0 0 +0 +0 +0 +0 0 0 0 0

Deferred Maintenance & Capital 

Improv. 75 34,429 72 29,960 +67 +1,039 +1 +0 73 31,066 +1 +1,106

Annual Maintenance & Ops Cost [274] [37,926] 277 41,160 +319 +0 +0 +0 277 41,479 0 +319

Total, Transportation & Facilities 

Maintenance 349 72,355 349 71,120 +386 +1,039 +1 +0 350 72,545 +1 +1,425

Total, Land and Resources 

Information Systems 87 16,697 85 15,827 +0 -15,827 -85 +0 0 0 -85 -15,827

Total, Nat'l Monuments & Nat'l 

Cons. Areas 253 31,870 253 31,819 +296 +0 +8 +3,000 261 35,115 +8 +3,296

Total, Challenge Cost Share 4 1,202 24 7,455 +27 +0 +0 +0 24 7,482 0 +27

Workforce & Organizational Support

Information Systems Operations 51 15,343 45 14,673 +0 -14,673 -45 +0 0 0 -45 -14,673

Administrative Support 338 50,287 338 49,130 +396 +0 +0 +0 338 49,526 0 +396

Bureauwide Fixed Costs 0 91,307 0 91,161 +4,912 +0 +0 +3,252 0 99,325 0 +8,164

Information Technology 

Management 0 0 0 0 +148 +27,500 +130 +0 130 27,648 +130 +27,648

Total, Workforce & Organizational 

Support 389 156,938 383 154,965 +5,456 +12,827 +85 +3,252 468 176,500 +85 +21,535
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 24

Summary of Requirements

(Dollars in Thousands)

2011 Actual 2012 Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes (+/-)

2013 President's 

Budget

Change From 

2012 Enacted

Total 

FTE Amount

Total 

FTE Amount FTE Amount FTE Amount FTE Amount

Mining Law Administration

Mining Law Administration 302 36,696 309 39,696 +0 +0 +8 +0 317 39,696 +8 0

Offsetting Fees 0 -36,696 0 -39,696 +0 +0 +0 +0 0 -39,696 0 0

Total, Mining Law Administration 302 0 309 0 +0 +0 +8 +0 317 0 +8 0

Other Reimbursables 

($ are non-add) 247 0 247 0 +0 +0 -63 +0 184 0 -63 0

Transfers -22

Total, Management of Lands and 

Resources* 6,497 976,029 6,527 960,361 +10,933 +1,039 -986 -20,316 6,732 952,017 +192 -8,344

* 2011 Actual amount for MLR reflects a 2011 Enacted level of $961,779,000, adjusted for net transfers ($-22,000) and an increase of $14,272,000 to adjust for actual

APD Fee Collections of $31,228,000. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 25

Bureau of Land Management

Justification of Fixed Costs - Management of Lands and Resources

(Dollars in Thousands)

Pay Raise and Pay-Related Changes PY

CY 

Change

BY 

Change

Calendar Year 2010 Quarter 4 -

Calendar Year 2011 Quarters 1-3 -

Calendar Year 2011 Quarter 4 +0 

Calendar Year 2012 Quarters 1-3 +0 

Calendar Year 2012 Quarter 4 +0 

Calendar Year 2013 Quarters 1-3 +1,723 

Non-Foreign Area COLA Adjustment to Locality Pay [+565]

Change in Number of Paid Days +1,924 

Employer Share of Federal Health Benefit Plans [+2,726] +2,374 

 Numbers in brackets indicate amounts absorbed by the agency in FY 2012. 

Other Fixed Cost Changes and Projections PY

CY 

Change

BY 

Change

Worker's Compensation Payments 

9,100 [+236] +186 

The adjustment is for changes in the costs of compensating injured employees and dependents of employees who 

suffer accidental deaths while on duty. Costs for the BY will reimburse the Department of Labor, Federal 

Employees Compensation Fund, pursuant to 5 U.S.C. 8147(b) as amended by Public Law 94-273.

Unemployment Compensation Payments 

6,800 [+100] +1,561 

The adjustment is for projected changes in the costs of unemployment compensation claims to be paid to the 

Department of Labor, Federal Employees Compensation Account, in the Unemployment Trust Fund, pursuant to 

Public Law 96-499.

GSA Rental Payments 

54,200 [+3,744] +658 

The adjustment is for changes in the costs payable to General Services Administration (GSA) and others resulting 

from changes in rates for office and non-office space as estimated by GSA, as well as the rental costs of other 

currently occupied space. These costs include building security; in the case of GSA space, these are paid to DHS. 

Costs of mandatory office relocations, i.e. relocations in cases where due to external events there is no alternative 

but to vacate the currently occupied space, are also included.

Departmental Working Capital Fund (WCF) 

12,800 [-1,843] +2,507 

The change reflects expected changes in the charges for centrally billed Department services and other services 

through the Working Capital Fund. These charges are displayed in the Budget Justification for Departmental 

Management.

 Numbers in brackets indicate amounts absorbed by the agency in FY 2012. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 26

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 27

Activity: Land Resources

2013 Change

Fixed Costs & Program from

2011 2012

Related 

Changes Changes Budget 2012 Enacted

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-)

Soil, Water & Air 

Mgmt.* $ 62,989 46,229 +248 -2,000 44,477 -1,752

FTE 322 248 0 0 248 0

Range Land 

Mgmt. $ 76,915 87,392 +724 -15,789 72,327 -15,065

FTE 642 762 0 -120 642 -120

Forestry Mgmt. $ 9,945 9,714 +57 -3,453 6,318 -3,396

FTE 84 84 0 -34 50 -34

Riparian Mgmt. $ 22,805 22,682 +214 0 22,896 +214

FTE 181 181 0 0 181 0

Cultural 

Resources Mgmt. $ 16,816 16,105 +139 +1,081 17,325 +1,220

FTE 121 121 0 0 121 0

Wild Horse & 

Burro Mgmt. $ 75,753 74,888 +180 +2,000 77,068 +2,180

FTE 174 174 0 0 174 0

Total Activity $ 265,223 257,010 +1,562 -18,161 240,411 -16,599

FTE 1,524 1,570 0 -104 1,466 -104

*In 2012, $15.9 million of funding for the Abandoned Mine Lands program was transferred from the Soil, Water, and 

Air Management subactivity to a new subactivity in the Resource Protection and Maintenance activity.

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Land Resources activity is $240,411,000 and 1,466 FTE, a 

program change of -$18,161,000 and -104 FTE from the 2012 enacted level.

ACTIVITY DESCRIPTION

This activity provides for integrated management of public land renewable and cultural 

resources. The Bureau of Land Management (BLM) manages these resources on a landscape 

basis, with each program contributing to the overall health of the land. Conserving, restoring, 

and sustaining the health of the land is the foundation for BLM‘s renewable resources 

management and is key to the agency‘s long-term strategic vision. Livestock grazing, timber 

harvesting and other resource uses can be sustained over time only if the land is managed to 

restore and/or sustain a healthy condition.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 28

The programs in this activity, in concert with other programs, work together to support BLM‘s 

mission by providing renewable resources, commercial and recreational uses, and aesthetic 

benefits through healthy forests, healthy rangeland ecosystems, functioning watersheds, and 

properly functioning riparian habitat. The BLM provides forage for livestock, protects cultural

values, and maintains thriving wild horse and burro herds. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 29

Activity: Land Resources

Subactivity: Soil, Water & Air Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Soil, Water & Air Mgt. ($000) 62,989 46,229* +248 -2,000 44,477 -1,752

FTE 322 248 0 0 248 0

Summary of 2013 Program Changes for Soil, Water & Air Management

Request Component ($000) FTE

Program Changes:

• Youth in the Great Outdoors -2,500 0

• Klamath Basin Restoration +500 0

TOTAL, Program Changes -2,000 0

*In 2012, $15.9 million of funding for the Abandoned Mine Lands program was transferred from the Soil, Water, and 

Air Management subactivity to a new subactivity in the Resource Protection and Maintenance activity.

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Soil, Water, & Air Management program is $44,477,000, and 

248 FTE, a program change of -$2,000,000 from the 2012 enacted level.

Klamath Basin Restoration (+500,000/0 FTE) – The 2013 budget request includes an 

increase of $500,000 for activities related to the Klamath Agreements that are authorized under 

existing law. Activities that could be undertaken include any additional follow-up regarding the 

evaluation of whether removal of four dams on the Klamath River is in the public interest and 

any related mitigation and subsequent ecologic restoration. The BLM is collaborating with other 

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

analyses, and interagency coordination efforts.

Youth Initiative Program Reduction (-$2,500,000/-0 FTE) - The 2013 budget request includes 

a reduction of $2,500,000 for the Youth Initiative in the Soil, Water, Air Management 

program. This reduction will be targeted towards lower priority work. The BLM will continue to 

support efforts to involve America‘s youth in the management and enjoyment of America‘s 

public lands. The Initiatives section provides additional explanations of BLM‘s youth activities. 

PROGRAM OVERVIEW

The Soil, Water & Air Management program collects soil, water, and air resource data and 

information required to manage natural resources and applies expertise to assess, sustain, 

protect, and improve the productivity and health of public lands. The program relies heavily on 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 30

collaborative partnerships with Federal, State, Tribal, and local governments and other entities 

to improve and enhance watershed, landscape, and airshed conditions. 

The Soil, Water & Air Management program historically has included management of the

Abandoned Mine Land (AML) program. In 2012, BLM will manage the AML program through a 

new subactivity in the Resource Protection and Maintenance activity.

Program Components

The Soil, Water & Air Management program provides information and expertise used to make 

informed decisions about public-land management; ensures compliance with anti-pollution laws 

such as the Clean Water Act and Clean Air Act; assesses the condition and trend of resources 

on public lands; and manages Federal interests such as water rights. Many other bureau 

programs rely upon this information and expertise to meet their assigned objectives. The Soil,

Water & Air Management program is responsible for:

Conducting soil surveys to understand the distribution of soils, soil properties, soil 

responses to various uses, and important climate change processes such as landcarbon sequestration; and developing related ecological site descriptions to understand 

processes that influence the type and amount of vegetation within defined landscapes. 

Monitoring and managing soils to support land-health standards, sustain plant and 

animal productivity, maintain water and air quality, and reduce threats to human health 

and safety;

Monitoring water resource trends and acquiring and protecting water rights to ensure 

adequate quantities of water are available for public-land management purposes;

Monitoring water quality and implementing appropriate best-management practices to 

promote functioning aquatic ecosystems and ensure waters on public lands meet 

applicable water-quality standards;

Reducing salinity discharged to waters of the Colorado River Basin to ensure usable 

water supplies to tens of millions of downstream users;

Assessing impacts to air resources including air quality, visibility, noise, and climate;

Reporting greenhouse gas emissions as required under Executive Order 13514. 

Means and Strategies

The Soil Water & Air Management program will continue emphasizing efforts to promote 

watershed function and soil stability as the means to achieve BLM performance goals. 

Priority will be placed on ensuring land managers have access to expertise needed to 

identify, monitor, and assess environmental effects of actions and decisions.

The BLM, Forest Service, and Natural Resources Conservation Service issued an 

interagency manual for developing and using rangeland ecological site descriptions in 

2010 and will issue a handbook with more detailed policy guidance in 2012. Ecological 

site descriptions are geospatial repositories of information about how vegetation 

responds to changes in management and climate. The interagency manual and 

handbook will ensure agencies develop consistent products that promote resource 

management on a landscape basis, rather than administrative boundaries.

Improvements in data management and standardized approaches will continue to be 

realized as the program implements bureau-wide initiatives for data stewardship, Eplanning, web-based training, and information technology system improvements.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 31

Significant effort has been put forth in recent years to revise outdated manual sections. 

Revised manual sections for soils were completed in 2008 and for air resources in 2009. 

BLM will continue this effort by completing draft manual sections for water rights and 

water quality in 2012. 

A five-year air-resource management strategy was developed in 2012 to improve the 

effectiveness and quality of how BLM addresses air resource issues on public lands.

The Department of the Interior, Department of Agriculture, and Environmental Protection 

Agency developed a Memorandum of Understanding in 2011 to improve approaches for 

analyzing air quality impacts from oil and gas development projects on Federal lands.

Critical Factors

Climate change and its potential to alter landscapes; the quantity, quality, and 

distribution of water resources; soil quality; air quality; vegetation and wildlife habitat; 

and associated socioeconomic values.

Significant levels of uncertainty in understanding groundwater-flow systems, the 

distribution of soils and related physical properties, and air resources impacts in many 

areas complicate decision making regarding site-specific impacts of management 

actions.

Demands and Trends 

The following are some of the significant demands and trends facing the Soil Water & Air 

Management program:

Development of renewable energy on public lands is a priority. Hydrologists, soil 

scientists, and air resource specialists are needed to assess and manage impacts 

associated with this development. 

Greater water demands for economic development and ecosystem requirements are 

increasing the need to perfect and protect federal water right interests. 

Stricter air-quality standards and visibility regulations are increasing workload and 

technical complexity to ensure activities on public lands that emit dust, ozone, and other 

pollutants comply with the Clean Air Act.

Meeting applicable water-quality standards in waters on public lands is becoming more 

demanding as greater numbers of public-land users and other factors result in more 

landscape disturbance.

2013 PROGRAM PERFORMANCE

The Soil, Water & Air Management program is addressing the demand and trends by continuing

to make progress towards key performance goals in 2013. Primary focus areas will include the 

following key areas:

Water Quality—Improving or maintaining water-quality of waters on public lands remains 

an important objective. Efforts will continue to focus on a combination of requiring best 

management practices for new land-use activities, changing traditional management 

practices where appropriate, and restoring degraded watershed function. The rate of 

overall change will continue to be incremental because of the slow response of water 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 32

quality to changes in landscape and vegetation conditions and rapid response to sudden 

changes from catastrophic fire and flood events. 

Soil Survey—The BLM will continue surveys in high priority areas including Wyoming 

and California to support ongoing efforts to increase development of domestic energy 

sources. Soil survey accomplishments in 2013 will be 515,000 acres, 100,000 acres less 

than projected for 2012, because some funding will be directed towards efforts to 

accelerate development and use of ecologic site descriptions. Soil surveys were 

completed for 655,000 acres in 2011; in 2012, BLM anticipates completing soil surveys 

for 615,000 acres.

Ecologic Site Descriptions--- Ecologic site descriptions are considered the best analytical 

approach for predicting how vegetation from local to landscape scales will respond to 

changes in management or climate conditions. The BLM will allocate additional funding 

to accelerate development and use of ecologic site descriptions for sage-grouse habitat 

management efforts. 

Water Rights—Processing water rights actions and related litigation activity is expected 

to remain high, but is difficult to estimate from year-to-year because the Bureau only can 

respond to applications submitted by other entities and participate in administrative 

hearings as scheduled by state governments. Typical workload ranges between 3000-

5000 actions. 

Colorado River Salinity Control—Efforts to reduce transport of salinity to the Colorado 

River will continue in 2013. The BLM annual performance goal under the Colorado River 

Salinity Control Program is to reduce transport of salt from public lands into the Colorado 

River system by 10,000-20,000 tons from new projects. The reported cumulative 

reduction from ongoing BLM efforts in 2011 was 126,000 tons per year. 

Air Resources---The BLM installed additional monitoring stations in 2011 and 2012 as 

part of the Air Quality Initiative. In 2011, BLM collected 87,650 air quality and climatic 

monitoring parameters, with 179,297 estimated for 2012. In 2011, BLM completed 91 air 

assessment actions, with 85 estimated for 2012. BLM does not predict 2013 activities in 

this area because of the wide variation of projects, but does expect to increase 

monitoring and assessment work in 2013 by approximately 10 percent. The BLM also 

used Air Quality Initiative funds to enter into a cooperative agreement with the Western 

Governors Association in 2011 to develop a regional air-quality model for all western 

states. This new model will be available in 2013 and is expected to reduce the time and 

cost for the BLM to conduct air-quality analyses and improve effectiveness of 

collaboration with stakeholders in resolving air resource management issues.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 33

Performance Overview

SOIL, WATER AND AIR MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife refuges, 

and BLM lands. 

Supporting Bureau Measures

Percent of surface waters (acres) 

managed by BLM that meet State 

(EPA-approved) water quality 

standards. (BUR)

87% 

283,616/ 

324,628

87% 

283,616/ 

324,628

87% 

283,616/ 

324,628

87% 

283,616/ 

324,628

87% 

283,616/ 

324,628

87% 

283,616/ 

324,628

87% 

283,616/ 

324,628

0%

87% 

283,616/ 

324,628

Percent of surface waters (stream 

miles) managed by BLM that meet 

State (EPA-approved) water quality 

standards. (BUR)

91% 

124,188/ 

136,327

91% 

124,188/ 

136,327

91% 

124,188/ 

136,327

91% 

124,188/ 

136,327

91% 

124,188/ 

136,327

91% 

124,188/ 

136,327

91% 

124,188/ 

136,327

0%

91% 

124,188/ 

136,327
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 34

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 35

Activity: Land Resources

Subactivity: Rangeland Management

2011 

Actual

2012 

Enacted

2013

Change from 

2012 Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Range Mgt. ($000) 76,915 87,392 +724 -15,789 72,327 -15,065

FTE 642 762 0 -120 642 -120

Other Major Resources:

Grazing Administrative Fee 

Collections (Proposed) 0 0 0 +6,500 6,500 +6,500

Grazing Administrative Fee 

Collections - Offset 0 0 0 -6,500 -6,500 -6,500

FTE 0 0 0 +50 50 +50

Major Program IT 

Investments: .

National Invasive Species 

Information System (Weed 

Database) 61 59 0 0 59 0

Native Seed Network 25 0 0 0 0 0

Rangeland Administration 

System (RAS) 516 520 0 0 520 0

Rangeland Improvement 

Project Systems (RIPS) 147 140 0 0 140 0

Summary of 2013 Program Changes for Range Management

Request Component ($000) FTE

Program Changes:

• Grazing Permit Renewal and Monitoring -15,789 -120

• Grazing Administrative Processing Fee Collection (Proposed, with offset) [+6,500] [+50]

TOTAL, Program Changes -15,789 -120

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Rangeland Management program is $72,327,000 and 642 

FTE, a program change of -$15,789,000 and -120 FTE from the 2012 enacted level.

Grazing Permit Renewal & Monitoring (-$15,789,000/ -120 FTE)- In 2012, BLM will use the 

increased appropriations to address numerous challenges, including completion of grazing 

permit renewals; annual and trend monitoring of grazing allotments; and improving the quality of 

BLM work on environmental and other documents related to livestock grazing. In 2013, the BLM 

requests a reduction of this amount. The BLM will address similar issues by use of an 

administrative fee that will result in collection of $6.5 million in 2013. See Legislative Changes

below for a detailed description of the administrative fee.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 36

Performance Change

RANGELAND MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 2: Provide for Sustainable Forage and Grazing

Strategic Plan Measure

Percent of grazing permits and 

leases processed as planned 

consistent with applicable 

resource management plans. 

(SP)

84% 

2177/ 

2,600

44%

2,554/

5,835

30% 

1,933 / 

6,484

31% 

1,933/ 

6,312

36% 

1,945/ 

5,383

36% 

2,396/ 

6,685

33% 2,100/ 

6,300 -3%

55% 

2,500/ 

4,500

Comment: In 2012, the enacted budget will result in a greater number of permit renewals. Subsequently, in 2013, the number permit renewals will sustain a moderate increase in 

comparison to the 2011 enacted level with the addition of the administrative fee proposal.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 37

Legislative Changes

Grazing Administrative Processing Fee - The Budget includes appropriations language for a 

three-year pilot project to allow BLM to recover some of the costs of issuing grazing 

permits/leases on BLM lands. BLM would charge an administrative fee of $1 per Animal Unit 

Month, which would be collected along with current grazing fees. The budget estimates the 

administrative fee will generate $6.5 million in 2013, and that it will assist the BLM in processing 

pending applications for grazing permit renewals. During the period of the pilot, BLM would 

work through the process of promulgating regulations for the continuation of the administrative 

fee as a cost recovery fee after the pilot expires. 

SEC. 117. In fiscal years 2013–2016, beginning on March 1, 

2013, and only to the extent and in the amount provided in 

advance in appropriations Acts, the Secretary of the Interior shall 

collect an administrative fee to offset the increased cost of 

administering the livestock grazing program on public lands 

managed by the Bureau of Land Management by charging $1.00 

per Animal Unit Month, which shall be billed, collected, and 

subject to the penalties using the same process as the annual 

grazing fee in 43 C.F.R. 4130.8–1. Penalties assessed shall be 

deposited in the General Fund of the Treasury. Nothing in this 

provision affects the calculation, collection, distribution, or use of 

the grazing fee under 43 U.S.C. 315–315rr, 43 U.S.C. 1751(b), 43

U.S.C. 1905, Executive Order 12548, or administrative regulation.

PROGRAM OVERVIEW

Program Components

The Rangeland Management Program major responsibilities include land health evaluations; 

grazing management (grazing systems development, management and evaluations; range 

improvements; and land treatments); 10 year permit renewal; annual billings; inspection and 

compliance; resource monitoring; management of permittee, allotment and resource data; and 

invasive species and noxious weed management. The program‘s major focus is maintaining or 

improving public land health and desired conditions through 1) implementing management and 

resource improvements/treatments described within 10 year grazing permits, and/or 2) 

implementing activity plans such as Allotment Management Plans (AMP) or Coordinated 

Resource Management Plans (RMP). Management priorities are placed on processing the 

most environmentally sensitive permits first. 

The BLM manages approximately 17,750 livestock grazing permits and leases on the public 

lands. Livestock grazing is an integral part of BLM‘s multiple-use mission and specifically 

authorized by the Taylor Grazing Act (1934), the Federal Land Policy Management Act (1976), 

and the Public Rangeland Improvement Act (1998). 

Livestock grazing also serves as an important tool in many areas to provide environmental 

benefits for vegetation management, improving wildlife habitat, and reducing catastrophic 

wildfire. Ranching provides many environmental services such as maintenance of open space, 

reduced wildfire risks, enhanced distribution of available water for wildlife, noxious and invasive 

species control, and increased opportunities for hunting and fishing. Ranchers often serve as 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 38

the eyes and ears for public land management and assist with increased public health and 

safety, public lands information, wildfire reporting, wildfire suppression when appropriate, land 

restoration, and search and rescue operations. The BLM also leverages grazing receipts with 

funds from local permittees/lessees to construct range improvement projects (see the Range 

Improvement Fund section for additional information).

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 inventory, land treatments, monitoring and 

project work to improve land health.

Critical Factors

Critical factors affecting the Rangeland Management Program include:

Frequent severe wildfires have reduced the diversity of our western rangelands and 

accelerated the amount of invasive species and noxious weeds.

Changing and competing public demands require continuous assessments and 

modifications of grazing practices and have made environmental reviews more complex. 

Limited baseline data about soils, ecological sites, and factors associated with land health 

stressors combined with limited monitoring data has created a large number of 

environmental lawsuits.

Increasing demand to control and manage thirty five million acres of BLM-managed lands 

that are infested with invasive and noxious weeds. 

Complexity of processing permits has increased due to litigation, mitigation, changing NEPA 

requirements, severe weather patterns, drought, catastrophic fire and other multiple-use 

public land challenges.

Means and Strategies

The Rangeland Management program coordinates with other BLM programs and partner 

organizations to achieve integrated vegetation management at the landscape level. The 

Rangeland Management program addresses the critical factors and strives to contribute to 

achieving land use plan resource condition goals and objectives by:

Using eco-regional assessments to identify conservation, development, and restoration 

strategies. These strategies will help guide where land health evaluations will be conducted.

Monitoring the effectiveness of grazing management towards achieving the land use plan 

resource condition objectives.

Conducting interdisciplinary land health evaluations on a watershed or landscapes to help 

ensure a balanced approach to livestock grazing.

Ensuring land health considerations and resource conflicts are the primary factors used to 

prioritize allotments for processing livestock grazing permit renewals.

Ensuring scientifically based livestock grazing management through permit issuance, 

Allotment Management Plans, and Coordinated Resource Management Plans. 

Tiering to Resource Management Plans and larger scale NEPA documents when 

processing permit renewals. 

Grazing Permit Renewal

In 2012 and 2013, BLM will continue to focus on the most environmentally sensitive grazing 

permits, using authorities provided in 2012 concerning grazing permit renewals and transfers of 

permits. The following tables show the BLM‘s annual permit renewal status. 

 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 39

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 the General Provisional language in the Appropriations Acts.

Chart 2

Chart 2 illustrates the cumulative number of permits. This number is greater than the number of permits 

administered, because some permits have expired more than once since 1999.

Focusing on the most environmentally sensitive allotments will increase attention on land health 

assessments and quantitative data collection; improve the usefulness of both the RMP/EIS and 

site-specific NEPA analyses; and result in grazing management decisions guiding land health 

solutions for the future. This strategy will assist in ensuring that the backlog of unprocessed 

permits consists of the least environmentally-sensitive allotments that are more custodial in 

nature and/or are already meeting land health standards.

The 2012 general provision related to grazing permit renewals specifies that a permit issued as 

a result of a grazing preference transfer can be issued for the remaining years of the pretransferred permit, if there is no change in the mandatory terms and conditions required. This 

will significantly streamline the work process on approximately 10 to 15 percent of BLM‘s annual 

permit workload, and allow the BLM to process permits originally scheduled to expire. This will 

reduce the permit renewal workload in 2013 by about 700 permits.

The administrative fee proposed in the Budget and the provisions approved in the 2012 

Appropriations Act, will provide for increased efficiencies in many areas of permitting process.

0

2000

4000

6000

Number of Permits

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011

Fiscal Year

BLM Annual Grazing Permit Renewal Status

Permits Expired Permits Fully Processed Permits in Unprocessed Status

0

5000

10000

15000

20000

25000

30000

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011

Number of Permits

Fiscal Year

BLM Cumulative Grazing Permit Renewal Status

Permits Expired Permits Processed Permits in Unprocessed Status
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 40

Sage-grouse Initiative: The Rangeland Management program must ensure 

that permitted actions and management improve or maintain sage-brush 

habitat conditions that ameliorate threats from grazing practices and produce 

significant conservation benefits to sage-grouse habitat at the local and 

landscape scale. The highest priority permits for completion in 2013 are in the 

focal areas outlined by the Greater Sage-Grouse Range-Wide Breeding Density Thresholds 

map (Doherty map). While completing permit renewals, the Rangeland Management 

program will:

Address desired vegetation conditions needed within allotments to meet Sage-grouse 

and other multiple use management needs;

Identify the restoration actions that must be taken within the allotments to meet those 

desired conditions;

Address monitoring required to inform managers if permitted actions within the 

allotment are allowing desired vegetation conditions to be maintained or improved;

Address mitigation needed to remove threats to Sage-grouse that are listed in the 

grazing management section of the March 2010 listing determination;

Work with the Natural Resources Conservation Service (NRCS) to implement its 

"Sage-grouse Initiative" on public lands associated with private lands undergoing 

ranch planning; and 

Work with NRCS where BLM permittees work on ranch planning and habitat 

improvement projects with the NRCS‘s Environmental Quality Incentives Program, on 

their private lands, to extend those grazing practices on public lands. BLM will also 

work with the U.S. Fish and Wildlife Service to include those public lands in Candidate 

Conservation Agreements.

Invasive Species and Weed Management 

Land areas that contain fire-adapted ecosystems and surface disturbance activities are most 

vulnerable to noxious weed and invasive species. The Noxious Weed and Invasive Species 

Management Program in the BLM‘s Rangeland Management Program addresses these issues 

on BLM lands throughout the West. The BLM will prioritize and expand ongoing Early Detection 

and Rapid Response systems (EDRR) and implementation in areas that target invasive species 

that were limited in their expansion and/or previously unknown to public lands.

Internal and external partners are critical for the BLM to succeed in detecting, controlling and 

managing noxious weeds and other invasive species. The Partners Against Weeds Action Plan 

(PAW), Pulling Together, National Strategy for Invasive Plant Management, and the National 

Invasive Species Management Plan assist in education, prevention, inventory, and monitoring 

while using an Integrated Pest Management (IPM) approach for control and restoration of 

weeds and invasive species areas. 

The BLM manages invasive species and weeds to improve habitat in riparian areas that are

critical to 60 percent of the wildlife species in semi-arid environments, and to improve terrestrial 

habitat areas that are critical for sage grouse. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 41

 

 

2013 PROGRAM PERFORMANCE

Permit Renewal: The BLM will continue to improve permit renewal procedures by prioritizing 

allotments based on environmental sensitivities and better-tiered NEPA processes. BLM will 

also continue to emphasize collecting quantitative resource data for more defensible decisions, 

and working closely with stakeholders, local governments, and the public during allotment plan 

development, evaluations, and the NEPA process. 

In 2012 and 2013, BLM will continue to focus on the most environmentally sensitive grazing 

permits, using authorities provided in the 2012 appropriations act concerning grazing permit 

renewals and transfers of permits.

The BLM plans to use the $6.5 million collected under the new administrative fee to process 235 

grazing permits and leases, monitor 200 allotments and complete 185 land health evaluations.

Before: A BLM partnership with the Escalante 

River Watershed Partnership used a combination 

of mechanical and chemical methods to control and 

manage two non-native woody invasive plants,

Russian olive and tamarisk along the Escalante 

River in Utah

After photo: Using passive restoration of the 

site, one year after the treatments, native 

species such as cottonwoods, coyote and 

Gooding‘s willows along with other native 

species grew back naturally.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 42

Performance Overview

RANGELAND MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife 

refuges, and BLM lands. 

Strategic Plan Measures

Percent of DOI acres that have 

achieved desired conditions 

where condition is known and as 

specified in management plans. 

(SP)

57% 

145,082,806/ 

256M

58%

147,325,000/

253M

59% 

149,206,024/ 

253M

59% 

152,192,000/ 

253M

63% 

155,970,340/ 

248M

66% 

163,846,740/ 

248M

69% 

170,652,000/ 

248M

+3%

72% 

179,086,000/ 

248M

Comments: The denominator change in 2011 from 253M to 248M is the result of land conveyance, exchange and disposal. The details of these lands actions are listed in the 

Public Land Statistics. 

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)

1.2% 

436,698/ 

35,000,000

1.2%

411,388/

35,762,000

1.21% 

433,905 / 

35,762,000

1.2%

411,888/

35,762,000

0.99% 

333,177/ 

35,762,000

0.58%

205,000/

35,762,000

0.58%

205,000/

35,762,000

0%

0.83% 

300,000/ 

35,762,000

Contributing Programs: Land Resources; Burned Area Rehabilitation; O&C Resources Management; Challenge Cost Share; and Other Subactivities.

Number of DOI acres restored to 

the condition specified in 

management plans. (SP)

1,000,156 950,157 1,136,759 950,000 848,477 485,119 511,000 +25,881 700,000 

Comment: In 2012, BLM will increase its permit renewal activities, which will result in a decrease in the number of acres restored. In 2013, $2.5 million will be used for Habitat 

Restoration and Improvement. The increased funding received will restore and improve key greater sage-grouse habitat for the benefit of sage-grouse populations.

Contributing Programs: Land Resources; Wildlife Management; O&C Resources Management; Range Improvements; Forest Ecosystems; SNPLMA Conservation; Resource 

Management Planning; Forestry Pipeline Restoration; NM&NCA's; Other Reimbursables. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 43

Performance Overview

RANGELAND MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 2: Provide for Sustainable Forage and Grazing

Strategic Plan Measure

Percent of grazing permits and 

leases processed as planned 

consistent with applicable 

resource management plans. 

(SP)

84% 

2177/ 

2,600

44%

2,554/

5,835

30% 

1,933 / 

6,484

31% 

1,933/ 

6,312

36% 

1,945/ 

5,383

36% 

2,396/ 

6,685

33% 

2,100/ 

6,300

-3%

55% 

2,500/ 

4,500

Comment: In 2012, the enacted budget will result in a greater number of permit renewals. Subsequently, in 2013, the number permit renewals will sustain a moderate 

increase in comparison to the 2011 enacted level with the addition of the administrative fee proposal.

Supporting Bureau Measure

Number of grazing administration 

actions conducted. (BUR)

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

96% 

30,006/ 

31,102

96% 

29,000/ 

30,000

96% 

27,000/ 

28,000

0%

96% 

27,000/ 

28,000
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 44

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 45

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Forestry Mgt. ($000) 9,945 9,714 +57 -3,453 6,318 -3,396

FTE 84 84 0 -34 50 -34

Other Major Resources:

SCDF: Timber Contract 

Expense (5500) 16 30 0 0 20 -10

POF: Forest Ecosystem Health 

& Recovery (5900) 3,793 4,603 0 0 4,816 +213

Transfer: USFS Forest Pest 

Control (9620) 556 522 0 0 522 0

Major Program IT 

Investments:

Forest Vegetation Information 

System (FORVIS) 110 100 0 0 100 0

Timber Sale Information 

System (TSIS) 487 302 0 0 302 0

Summary of 2013 Program Changes for Forestry Management

Request Component ($000) FTE

Program Changes:

• General Program Decrease -3,303 -34

• Reduce Healthy Landscapes Funding -150

TOTAL, Program Changes -3,453 -34

The 2013 Budget Request for the Public Domain Forestry program is $6,318,000 and 50 FTE, a 

program change of -$3,453,000 and -34 FTE from the 2012 enacted level.

General Program Decrease (-$3,453,000/ -34 FTE) – The BLM will reduce lower-priority 

activities by $3.3 million. This program decrease also includes a reduction of $150,000 for 

Healthy Landscapes landscape restoration projects in lower priority Public Domain forested 

areas.

Activity: Land Resources

Subactivity: Public Domain Forest Management
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 46

Performance Change

PUBLIC DOMAIN FOREST MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 1: Manage timber and forest products resources

Supporting Bureau Measures

Volume of wood products offered 

(biomass for energy) consistent with 

applicable management plans. 

(BUR)

109,345 103,300 355,000 100,000 119,000 110,000 55,000 -55,000 120,000

Contributing Programs: Forestry Management, Hazardous fuels; O&C Resources Management ; and Forest Ecosystem Health . 

Percent of forestry improvements 

(acres) completed as planned. 

(BUR)

82% 

22,629/ 

27,564

85%

21,929/

25,700

89%

22,833/

25,700

85% 

21,845/ 

25,700

67% 

17,301/ 

25,700

85% 

21,845/ 

25,700

29% 

7,345/ 

25,700

-59%

29% 

7,345/ 

25,700

Comment: Data include both O&C and PD Forestry
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 47

Program Overview

Program Components

The Public Domain Forest Management program creatively and efficiently conserves, restores, 

and sustainably manages over 58 million acres of forests and woodlands in 12 western states, 

including Alaska. BLM forests and woodlands serve a diversity of purposes and provide many 

important benefits. They offer a variety of forest products and recreational opportunities that 

support local economies. They serve as valuable wildlife habitat, and play an important role in 

carbon storage cleaning air and water. 

The program focuses on ecosystem restoration and health, protection, and management for 

multiple objectives including biodiversity, conservation, and sustainable development for local 

communities. Appropriated funding is leveraged 

with Forest Ecosystem Health and Recovery 

Funding, USDA Forest Health Protection funding, 

and stewardship authority to increase program 

accomplishments and meet Bureau goals. The 

program also coordinates with the Wildland Fire 

management program to leverage funds for 

hazardous fuels reduction projects.

The program:

Implements forest restoration projects to

improve forest health and resilience so that 

the forests better withstand disturbances 

from wildfires, insects, disease, drought, and 

climate change at the landscape scale. 

Salvages dead and dying timber to 

promote forest health and reduce hazardous 

fuels, while considering wildlife habitats, 

watershed health, soil stability, and local 

economic opportunities.

Provides personal use and commercial 

opportunities for vegetative products from 

forests, woodlands, rangelands and desert 

environments.

Maintains an inventory for over 58 million 

acres of forest and woodland resources on the Public Lands.

Critical Factors 

The following represent the primary critical factors affecting the BLM‘s Public Domain Forest

Management program:

BLM estimates that approximately 14 million acres of BLM‘s forests and woodlands are 

overstocked and at risk of increased insect and disease attacks and catastrophic 

wildfire.

Most forest restoration and health treatments are accomplished through the sale of 

forest products that are the by-products of the treatments. The closing of many 

traditional sawmills, paper mills, and other wood product utilization facilities decreased

Figure 1 Public Domain Forest Areas 

Shown in Black
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 48

markets for forest products. Loss of infrastructure in the logging contractor community, 

fluctuation in the housing market, and transportation costs affect BLM‘s ability to sell 

timber, utilize the by-products of treatments, and complete treatments. Many isolated 

BLM forest parcels are inaccessible without access across private lands, often 

preventing timely forest treatments.

Means and Strategies

The Public Domain Forest Management program coordinates with other BLM programs 

and partner organizations to achieve integrated vegetation management at the 

landscape scale. 

BLM policy requires that all measurable biomass by-products from forest treatments 

such as timber sales, stewardship contracts, and hazardous fuels reduction are offered 

for utilization. 

The program facilitates the coordination of biomass removal between public agencies 

and private markets. BLM is partnering with the USDA Forest Service, Department of 

Energy (DOE), state and private agencies to develop and implement the Coordinated 

Resource Offering Protocol (CROP) tool. CROP highlights biomass removal 

opportunities in a transparent process available on the web. Private investors use the 

data when considering renewable bio-energy development opportunities. Over 20 

CROP evaluations have been completed on over 50 million acres of public and private 

forestlands including BLM forests in Arizona, California, Colorado, Idaho, Montana, New 

Mexico, Oregon, Utah, and Wyoming. 

The program supports renewable energy goals by promoting the direct conversion and 

use of woody biomass for energy within BLM‘s federally-owned facilities, as a part of a 

DOE, USDA, DOI interagency Bioenergy Facility Initiative.

Foresters prescribe treatments to create species-diverse, multi-aged forests, with proper 

stocking densities to promote resilience in response to environmental stresses including 

changes in climate, insect and disease attack, and wildfires.

Foresters are involved in managing Ecoregional Assessments in the Middle Rockies, 

Northwestern Plains, Colorado Plateau, Northern Great Basin, and Central Basin 

geographic areas. These assessments will facilitate prioritization of forest health and 

restoration treatments on a landscape scale, and identification of areas of high forest 

mortality due to drought, insects, and disease.

Foresters sustainably harvest and regenerate forests to produce a continuous supply of 

wood products and energy feedstocks that may sequester or offset more cumulative 

carbon than forests that are left unharvested.

Foresters use stewardship contracting agreements with partners, thereby leveraging 

funding to conduct forest health and restoration treatments and improve wildlife habitat 

by trading forest products to pay for the treatments and using matching funds to treat 

more acreage.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 49

2013 PROGRAM PERFORMANCE

In 2013 the Public Domain Forest Management program will reduce program capacity and 

outputs. However, emphasis will remain on using sales contracts to achieve desired future 

conditions on the 58 million acres of forests and woodlands in the Public Domain.

In FY 2013, the Public Domain Forest Management Program will:

Offer 55,000 tons of green biomass, compared to 117,000 tons in 2011 and a planned 

110,000 tons in 2012;

Offer 12 MMBF of timber and other forest products for sale, compared to 31 MMBF in 

2011 and a planned 30 MMBF in 2012;

Offer 7 Stewardship Contracts, compared to 41 in 2011 and a planned 35 in 2012;

Restore and treat through sales 5,500 acres, compared to 21,600 acres restored and 

treated in 2011, and a planned 21,700 acres in 2012;

Issue 12,000 permits to individuals and small businesses for fuelwood and non-timber 

forest products, compared to 24,000 permits in 2011, and a planned 23,000 permits in 

2012;

Perform no inventory of forest and woodlands acres, compared to 95,000 acres 

inventoried in 2011, and a planned 110,000 acres inventoried in 2012;

Evaluate and treat 4,000 acres of forest and woodlands, compared to 14,100 acres 

evaluated and treated in 2011, and a planned 16,000 acres in 2012.

Success Story: Two Tails Stewardship in Bonners Ferry, ID

BLM collaborated with the community in Bonners Ferry, ID and implemented a 1,300 acre 

stewardship project that included tree thinning on 700 acres, site preparation, and tree 

planting. A local elected official was enthusiastic about the BLM project ̳s economic impact 

on the community: ―This project was wonderful..... The project had about a $2 million gross 

value, and all but the trucking cost came back into our economy here....This project in one 

year was a $14 million shot [of revenue into the community], and that was from only 700 

acres. It’s nice to employ the local contractors, but that amount of money rolling through the 

community is really important. The BLM has been a very good partner.”

 

Before treatment, 5,000 trees per acre After treatment, the forest is restored to a 

crowded the site, creating an unhealthy forest healthy condition, hazardous fuels are reduced,

in danger of insect, disease, and wildfire attack. and wildlife habitat is improved.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 50

Performance Overview

PUBLIC DOMAIN FOREST MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 1: Manage timber and forest products resources

Supporting Bureau Measures

Volume of wood products offered 

(biomass for energy) consistent with 

applicable management plans. 

(BUR)

109,345 103,300 355,000 100,000 119,000 110,000 55,000 -55,000 120,000

Contributing Programs: Forestry Management, Hazardous fuels; O&C Resources Management ; and Forest Ecosystem Health . 

Percent of forestry improvements 

(acres) completed as planned.

(BUR)

82% 

22,629/ 

27,564

85%

21,929/

25,700

89%

22,833/

25,700

85% 

21,845/ 

25,700

67% 

17,301/ 

25,700

85% 

21,845/ 

25,700

29% 

7,345/ 

25,700

-59%

29% 

7,345/ 

25,700

Comment: Comment: Data include both O&C and PD Forestry
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 51

Activity: Land Resources

Subactivity: Riparian Management

2011 

Actual

2012 

Enacted

2013

Change from 

2012 Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Riparian Mgt. ($000) 22,805 22,682 +214 0 22,896 +214

FTE 181 181 0 0 181 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Riparian Management program is $22,896,000 and 181 FTE.

PROGRAM OVERVIEW

Program Components

The BLM Riparian Management Program provides the framework for assessing, monitoring, 

and managing over 150,000 miles of riparian area and nearly 13 million acres of wetland area.

Riparian areas are important in every landscape type, but in the arid West these moist, green 

areas are critical to sustaining ecosystem functions and services, providing terrestrial and 

aquatic wildlife habitat including migratory bird flyways, reducing erosion and improving water 

quantity, and providing recreational opportunities. The diversity of use and function of the 

riparian resource and its geographical position on the landscape make riparian areas the 

integrator of landscape activities and a relevant indicator of overall ecosystem function. 

Sage-grouse Initiative: Healthy functioning riparian areas play a prominent 

role in the Bureau‘s ability to maintain sage-grouse populations in the West. 

These are important areas for the growth and survival of sage-grouse, 

particularly at early life stages. Riparian areas provide the moist green 

vegetation that serves as protection from predators and supply native forbs and 

insects, which are the critical food necessary for sage-grouse survival. 

Critical Factors

There are a number of external factors impacting the riparian program requiring management to 

reallocate resources and reevaluate management priorities. Some factors that will have long 

standing impacts include:

Changing temperature and moisture regimes resulting in frequent and severe weather 

events like floods and drought that require management actions and aggressive pursuit 

of adaptive management strategies.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 52

Increasing demands upon water resources and impacts

from land use changes upon streamflow, wetlands, seeps 

and springs, which necessitate increased workload for 

monitoring and for undertaking adaptive management 

strategies.

Development of public lands as part of the New Energy 

Frontier for renewable and non-renewable energy and 

mineral resources requiring mitigation efforts to offset 

water discharge, water pollution, or water loss that cause 

fragmentation and/or loss of riparian habitat.

Spread of invasive terrestrial and aquatic species,

requiring additional monitoring and treatment to prevent 

degradation of functioning ecosystems and native plant 

and animal communities.

Increasing need for restoration and protection as habitat 

loss has increased the number of sensitive species and 

respective habitat requirements. Many of these sensitive 

species like sage-grouse, cutthroat trout, bullhead trout, 

warm water aquatic species, and salmonids have a critical 

nexus with riparian resources.

Urban growth and increasing public use of riparian/wetland

areas requires additional monitoring to detect degradation 

from trails, transportation routes, and visitor use activities 

and to prioritize restoration activities.

Effects of catastrophic wildfire activity are increasing the 

workload to stabilize and rehabilitate burned areas and monitor treatment success as

well as land condition and trend.

Means and Strategies

The Riparian Management Program coordinates with other BLM programs and partner 

organizations to achieve integrated vegetation management at the landscape level. The 

Program is addressing the critical factors through activities to manage riparian resources and to 

support BLM-wide efforts, including:

Using results from the Rapid Eco-regional Assessment (REA) process to identify focal 

areas for riparian conservation and restoration at the eco-regional scale. 

Coordinating riparian restoration with step-down strategies developed from the BLM‘s 

Landscape Approach and with Healthy Landscapes focal areas.

Conducting Proper Functioning Condition assessments in coordination with land health 

assessments on a watershed or landscape-level basis.

Setting quantifiable objectives for riparian vegetation and using science-based 

monitoring protocols to evaluate achievement of these objectives. Capturing legacy and 

new assessment/monitoring data into a national geospatial dataset to more efficiently 

analyze and report on the condition and trend of riparian resources.

Coordinating with other programs to create a land treatments national geospatial dataset 

to document location of treatments on the landscape and to track their effectiveness.

Prioritizing riparian treatments to protect sage-grouse and other ecologically diverse and 

important plant and animal communities and habitats in areas that are functioning at risk.

A Clean Water and Watershed 

Restoration project at The 

Blanca Wetlands in southern 

Colorado was successful in 

sustaining key wildlife 

populations through improved 

water delivery to sensitive 

wetlands habitat.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 53

Using funds provided through the Clean Water Watershed Restoration (CWWR) Act to 

complete on-the-ground restoration projects focused on improving water quality, riparian 

and aquatic resources.

Working to educate youth about the importance and complexity of riparian resources.

Working with diverse stakeholders to improve riparian resources across jurisdictional 

boundaries through the interagency Creeks and Communities Strategy.

Riparian Management Program funds are frequently leveraged with other Federal, state, 

and local agencies and NGOs to implement on-the-ground projects. The Creeks and 

Community Strategy has been a significant contributor to this leveraging of BLM funds 

with those of other Federal and state agencies, stakeholders, and local NGOs.

2013 PROGRAM PERFORMANCE

In 2013 the Riparian Management Program will continue to ―Protect America‘s Landscapes‖ by 

improving land and water health through ongoing management of wetlands and riparian areas. 

Riparian condition assessments, prioritizing and implementing management actions, and 

monitoring the effectiveness of those actions are the key components of the program. 

Program activities contribute to several DOI and BLM performance measures.

Assessment and monitoring of riparian areas are crucial activities of the program. These 

activities help direct management actions to areas not meeting desired conditions. In 

addition, riparian assessment and monitoring provide the data for DOI Strategic Plan 

Performance measure ―percent of DOI riparian (stream/shoreline) miles that have 

achieved desired condition.‖ Incremental increases are being made in this performance 

measure, but due to the large number of riparian miles it is expected that this value will 

remain at 86 percent in 2013. 

Similar to riparian areas, wetland areas are also assessed and monitored to direct 

management actions to areas not meeting desired conditions. Data collected during

wetland assessment and monitoring 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.‖

The ―Percent of Resource Management Plans evaluated by the BLM Director as making 

significant progress toward achieving riparian condition goals‖ is a Bureau performance 

measure. Components necessary to meet this measure are riparian management 

actions and assessment and monitoring data collected to guide those actions and 

evaluate their effectiveness.

On-the-ground management actions undertaken by the Riparian Program directly 

contribute to improvement of degraded riparian areas. These actions are essential to 

meeting the Department‘s performance measure ―number of DOI riparian 

(stream/shoreline) miles restored to the condition specified in management plans‖ and to 

The Creeks and Community Strategy was initiated by the NRST at the Upper Missouri River Breaks National 

Monument in 2008. The strategy has been used to facilitate discussions about riparian condition, current 

management, and trend and potential of the Upper Missouri River and to allow effective participation and 

collaboration to address riparian issues along the river. Stakeholders were invited to participate in riparian 

assessments and to engage in on-site discussions about resource conditions. Collaborative learning (being on 

river together) had great value and improved relationships between different stakeholders and BLM on the Upper 

Missouri River.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 54

ensuring progress in improving riparian conditions on BLM lands. In 2013, the planned 

number of miles for restoration is 749.

In 2013 the Riparian Program will continue to implement the interagency Creeks and 

Community Strategy and to support the interagency National Riparian Service Team (NRST). 

The NRST helps provide consistency in assessing, monitoring and cooperatively restoring 

riparian resources within the BLM and across multiple Federal and state agencies. It does this 

through providing training to staff and state cadres, technical information transfer, development 

of technical tools, and riparian restoration projects. The NRST is also the primary provider of 

collaborative stakeholder engagement used to address water and riparian conflicts in the arid 

West in an effort to avoid litigation. The NRST will continue to provide place-based problem 

solving relative to riparian resources in the NLCS, including units such as the Upper Missouri 

River Breaks National Monument and the San Pedro Riparian National Conservation Area.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 55

Performance Overview

RIPARIAN MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife refuges, 

and BLM lands. 

Strategic Plan Measures

Percent of DOI stream/shoreline 

miles that have achieved desired 

conditions where condition is known 

and as specified in management 

plans. (SP) 

90% 

128,310/ 

143,290

91% 

130,146/ 

143,290

85% 

131,976/ 

154,976

85% 

131,976/ 

154,976

85% 

132,466/ 

154,976

85% 

131,976/ 

154,976

86%

133,000

154,976

+1%

91%

141,000

155,000

Contributing Programs: Land Resources; Wildlife and Fisheries Management; O&C Resources; Contributed Funds; Challenge Cost Share; and Other Subactivities.

Number of DOI riparian 

(stream/shoreline) miles restored to 

the condition specified in 

management plans. (SP)

767 779 1,734 788 749 788 749 -39 788

Comment: In 2013, the BLM will be placing a greater emphasis on assessment and monitoring data collection in order to better guide out-year restoration. This will cause a 

reduction in restoration projects accomplished and miles restored.

Contributing Programs: O&C Resources Management; Land Resources; Wildlife Management; Reimbursables; Challenge Cost Share and Contributed Funds; and Range 

Improvements.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 56

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 57

Activity: Land Resources

Subactivity: Cultural Resources Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Cultural Resources Mgt. 

($000) 16,816 16,105 +139 +1,081 17,325 +1,220

FTE 121 121 0 0 121 0

Summary of 2013 Program Changes for Cultural Resources Management

Request Component ($000) FTE

Program Changes:

• General Program Increase - America's Great Outdoors +1,081 0

TOTAL, Program Changes +1,081 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Cultural Resources Management Program is $17,325,000 and 

121 FTE, a program change of +$1,081,000 from the 2012 enacted level.

General Program Increase – America’s Great Outdoors (+$1,081,000/ 0 FTE) - The 2013 

budget request includes a program increase of $1,081,000 for the Cultural Resource Program, 

targeted to support the America‘s Great Outdoors initiative. The additional funds will be focused 

on the following two key areas: 

Heritage Resources of America’s Diverse Communities (+$800,000/ 0 FTE) – Inventory, 

protect, and interpret treasured sites and places of special meaning significant to the diverse 

communities represented across the American West, and engage ethnic, rural, and 

underrepresented groups in public land management, through the following three project 

categories:

Conducting regional ethno-geographic landscape assessments to inventory places of 

cultural importance and identify and evaluate properties for management and 

interpretation, as well as to inform regional landscape planning decisions and assess the 

effects of proposed development projects;

Engaging under-represented groups in heritage resource stewardship through 

consultation on resource management strategies and involvement in public education 

and interpretive activities, volunteer opportunities, internships, and research; and

Repatriating to Native Americans human remains and cultural items held in BLM‘s 

extensive collections and enhancing management of culturally significant sites on the 

public lands, in accordance with the Native American Graves Protection and 

Repatriation Act and E.O. 13007, Sacred Sites.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 58

Paleontological Resources Preservation (+$281,000 / 0 FTE) – Support the continued 

implementation of the Paleontological Resources Preservation subtitle of the Omnibus 

Public Lands Act of 2009, advancing the management of nationally significant and 

scientifically important fossils that illustrate the history of life on Earth, including changing 

climate regimes through the following:

Core implementation activities include inventory, stabilization, and monitoring of key fossil 

localities on the public lands and specimens in museum collections, as well as education 

and interpretation to enhance scientific understanding and engage the public. 

A key strategy is completion of a national database for efficiently managing locality and 

collection data, which will improve coordination and exchange of information with key 

research partners, support landscape assessments and planning, and facilitate land-use 

decisions in fossiliferous areas.

PROGRAM OVERVIEW

The BLM Cultural Resources Management program is responsible for the largest, most diverse, 

and scientifically important aggregation of cultural, historical, and paleontological resources on 

the public lands, and the associated museum collections and data. The cultural resources 

represent all major periods and events in the broad sweep of human occupation in the West of 

at least 10,000 years, from prehistoric times up through the present era. The paleontological, or 

fossil, resources represent the development of life on Earth, as well as Earth‘s 

paleoenvironment. These resources are managed to ensure the cultural, educational, aesthetic, 

inspirational, scientific, recreational, and economic benefits are maintained and available for 

future generations. The program consists of the following elements:

managing archaeological sites and historic properties, in support of the Archaeological 

Resources Protection Act (ARPA) and the National Historic Preservation Act (NHPA) 

including inventory, stabilizing, monitoring, and 

digitizing the inventory;

managing fossil localities and implementing the 

Paleontological Resources Preservation 

subtitle of the Omnibus Public Lands Act of 

2009, including inventory, stabilizing, and 

monitoring;

accounting for the BLM‘s 11 million artifacts 

and specimens recovered from the public 

lands, and the associated records, including 

documentation, preservation, and use in the 

BLM‘s three museum facilities and in 

coordination with the 140 state, tribal, and non-profit partner museums and universities 

that curate BLM collections

facilitating Government-to-Government consultation with Indian tribes and Alaska Native 

governments on a regular basis concerning traditional tribal activities and places of 

special meaning on the public lands, such as sites of religious significance;

complying with the Native American Graves Protection and Repatriation Act (NAGPRA) 

and honoring Federal commitments to inventory and repatriate Native American human 

remains and cultural items held in collections and to respond to new discoveries on the 

public lands;

developing and implementing education and interpretation opportunities for the public to 

engage with cultural and paleontological resources; and

BLM’s heritage resources include:

328,000 recorded cultural properties;

83 historic properties listed on the 

National Register and 38,000 properties 

eligible for listing;

63,000 monitored archaeological sites; 

390 maintained historic structures;

25,000 recorded paleontological 

localities; and

10 million documented artifacts and 

specimens.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 59

Cultural Resource Inventory

21.8 million acres of BLM‘s 248 million 

surface acres have been inventoried for 

cultural resources, or 8.9 percent of the 

public lands. The total number of 

cultural and paleontological resources 

will increase as more of the public lands 

are inventoried to identify and record 

these resources.

NHPA Section 106 Casework

Section 106 of the NHPA requires the 

BLM to take into account the effects of 

its actions on historic properties and 

provide the Advisory Council on Historic 

Preservation with a reasonable 

opportunity to comment. Annually, BLM 

reviews more than 13,000 land use 

proposals for their potential effect on 

properties listed on or eligible for the 

National Register of Historic Places. 

BLM‘s national Programmatic 

Agreement with the Advisory Council on 

Historic Preservation, and National 

Conference of State Historic 

Preservation Officers is the primary 

mechanism for achieving cost 

efficiencies and flexibility in the NHPA 

Section 106 review process.

supporting research on cultural and paleontological resources to enhance scientific 

understanding and support sound decision-making.

Critical Factors 

The Cultural Resources Management Program faces a broad range of challenges and critical 

factors that influence the program work, and has directed resources to address the following: 

Risk to Heritage Resources - cultural, historic, 

and paleontological resources are increasingly 

vulnerable to theft, destruction, and vandalism as 

a result of increased accessibility of once remote 

public lands at urban interfaces by well-equipped 

hikers, off-highway users, and urban and 

suburban encroachment;

Section 106 of the NHPA Casework - increased 

renewable energy and energy exploration and 

development activities have increased demands 

for the Cultural Resource Management program to 

provide project review in conformance with 

Section 106 of the NHPA;

Directive on Government-to-Government

Consultation with Indian Tribes - issuance of 

the Department of the Interior policy on

government-to-government consultation with 

Indian tribes and Native Alaska villages and 

corporations on December 1, 2011, will enhance 

participation of tribal communities in agency 

decision-making processes. BLM is working on a 

―step-down‖ policy for bureau implementation;

Paleontological Resources Preservation 

Authority - implementation of the Paleontological 

Resources Preservation subtitle of the Omnibus 

Public Lands Management Act of enhances

protection of fossil resources under the new 

statutory mandates for the management, preservation, and protection of paleontological 

resources, casual collecting, permitting, inventory and monitoring, public awareness and 

education, law enforcement (fossil theft and vandalism), and curation of fossils from 

public lands; 

Government Accountability Office Audit of NAGPRA Compliance – continuing to 

implement the recommendations in the Government Accountability Office audit on 

Federal Agency NAGPRA Compliance, by continuing to inventory Native American 

cultural items held in collections and consulting with Indian tribes to determine 

disposition; and 

Office of the Inspector General Audit of Museum Collections – continuing to 

implement the recommendations in the December 2009 DOI Office of the Inspector 

General Audit on Department of the Interior‘s Management of Museum Collections, 

including identification and curation of artifacts and specimens recovered from the public 

lands, upgrading preservation and documentation for accountability, and ensuring 

access and use for research and public benefit.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 60

BLM’s Project Archaeology

Since 1990, Project Archaeology, 

BLM's primary heritage education 

program, has served more than 10,000 

educators with high-quality curricular 

materials; these educators reach an 

estimated 210,000 students annually 

with heritage stewardship education.

Means and Strategies

The Cultural Resource Management program addresses program priorities in a number of 

significant ways that include:

creating efficiencies in the NHPA Section 106 review process by continuing the BLM‘s 

national Programmatic Agreement with the Advisory Council on Historic Preservation 

and National Conference of State Historic Preservation Officers (NCSHPO);

maintaining active working relations with western State Historic Preservation Offices 

(SHPO) as part of the BLM‘s Cultural Resources Data Sharing Partnership to automate 

and digitize site records, and analyze this information for use in planning and expedited 

review of land-use undertakings at a significant cost savings;

coordinating with the Office of Law Enforcement and Security to curb criminal acts 

prohibited by the ARPA, NAGPRA, and other Federal statutes protecting cultural 

property;

relying on museums and universities to curate the vast majority of BLM collections, 

rather than managing in-house, at a significant cost-savings. Under this management 

model BLM coordinates with these repositories to ensure that collections are managed 

according to Federal and Departmental standards; and

enhancing and developing partnership, volunteer, 

and youth opportunities for community-based 

conservation and educational activities that 

promote public investment in the management of 

the Nation‘s heritage resources.

Other Funding Sources

The majority of cultural resource inventory 

conducted on the public lands is funded by other 

sources. Annually, 700,000 acres of the public 

lands are inventoried for cultural resources, 90 percent of which is funded either by 

benefitting BLM programs or land-use proponents as part of cultural clearance work in 

compliance with Section 106 of the NHPA. Cultural resources also receives challenge 

cost share funds to support community-based volunteer and partner and educational 

activities.

The BLM enjoys the support of partners and volunteers who supplement BLM‘s work by 

providing matching funds and in-kind contributions for proactive management, research, 

stabilization, monitoring, education, and outreach. 

2013 PROGRAM PERFORMANCE

In 2013, the Cultural Resource Management program will focus on continuing proactive 

management efforts including the inventory, monitoring, and stabilization of cultural and 

paleontological resources, and implementing more effective government-to-government 

relationships with Indian tribes. The BLM will also continue to support the review of proposed 

land-uses, including renewable and traditional energy projects, to evaluate potential impacts to 

cultural and paleontological resources. Specific activities the Cultural Resources Management 

program will perform include:
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 61

Investigating Looting and Trafficking in the Four Corners Region

BLM Law Enforcement and Cultural Resource programs continue efforts to address 

looting of archaeological sites and trafficking in artifacts in the Four Corners region. Codenamed ―Cerberus Action,‖ this investigation has so far resulted in the conviction of 28

individuals and the recovery of hundreds of thousands of artifacts from public and Indian 

lands.

Conducting inventory of high priority public lands for cultural and paleontological 

resources;

Stabilizing and implementing other physical protection measures at the highest priority 

scientifically, culturally, or educationally important and/or critically threatened heritage 

properties;

Developing BLM ―step-down policy‖ for implementing Secretary‘s Department-wide 

Tribal Consultation Policy signed on December 1, 2011;

Maintaining a BLM liaison at the Advisory Council on Historic Preservation to expedite 

review of compliance cases, especially pertaining to renewable energy and tribal 

consultation;

Continuing to develop and implement low-cost solutions for providing support and 

coordination with the museums and universities that curate BLM‘s museum collections;

Implementing public education programs to promote public stewardship and enjoyment 

of America‘s cultural and paleontological resources, and developing public outreach 

projects to facilitate volunteerism and youth opportunities; and

Continuing to provide cultural expertise to the Office of Law Enforcement and Security 

investigations into the looting of archaeological sites and trafficking in antiquities.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 62

Performance Overview

CULTURAL RESOURCES MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Longterm 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

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.

Strategic Plan Measures

Percent of historic structures on DOI 

inventory in good condition (SP)

50% 

182/ 362

49% 

187/ 380

49% 

192/ 390

49% 

197/ 400

48% 

193/ 400

48% 

195/ 407

48% 

196/ 408 0% 50%205/ 410

Percent of collections on DOI inventory 

in good condition. (SP) 

100% 

3 / 3

100% 

3 / 3

100% 

3/3

77% 

109 / 141

83% 

118 / 142

83% 

120/ 145

83% 

122/ 147 0% 85% 136 / 160

Comment: Beginning in 2011, the number of BLM collections reported includes collections managed internally by BLM facilities and collections managed by museums 

and universities through partnerships. This change in reporting is consistent with the definition of the Strategic Plan measure which includes both internally and 

externally managed collections. The overall percentage is directly affected by the number of collections added to the inventory each year. 

Percent of archaeological sites on DOI 

inventory in good condition (SP)

83% 

47,537/ 

57,273

83%

48,980/

58,837

84% 

52,620/ 

62,987

83% 

51,123/ 

61,837

84% 

60,521 

71,644

85% 

60,897/ 

71,644

85% 

61,200/ 

72,000

0%

85% 

68,000/

80,000 

Supporting Bureau Measure

Percent of paleontological localities in 

BLM inventory in good condition. (BUR) 

88% 

19,421/ 

22,000

95% 

19,421/ 

20,337

98% 

24,926/ 

25,436

95% 

19,521/ 

20,537

95% 

26,643/ 

27,230

98% 

25,051/ 

25,686

98% 

23,030/ 

23,500

0%

98% 

24,500/ 

25,000
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 63

Activity: Land Resources

Subactivity: Wild Horse and Burro Management

2011 

Actual

2012 

Enacted

2013

Change from 

2012 Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Wild Horse & Burro Mgt. 

($000) 75,753 74,888 +180 +2,000 77,068 +2,180

FTE 174 174 0 0 174 0

Other Major Resources:

SCDF: Adopt-A-Horse 

Program (52xx) 402 450 0 0 450 0

Transfer: USFS Wild Horses 

(9830) 1,500 1,500 0 0 1,500 0

Major Program IT 

Investments:

Wild Horse and Burro 

Program System (WHBPS) 711 732 0 0 732 0

Summary of 2013 Program Changes for Wild Horse & Burro Management

Request Component ($000) FTE

Program Changes:

• Research & Development: Contraception/Population Control +2,000 0

TOTAL, Program Changes +2,000 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Wild Horse and Burro (WHB) Management Program is 

$77,068,000 and 174 FTE, a program increase of $2,000,000 and 0 FTE from the 2012 enacted 

level.

Research and Development for Contraception/Population Control (+$2,000,000) - In 2013, 

the BLM will fund new research on contraception and population growth suppression methods 

for males and/or females that may include studying the effects on herd genetics, animal 

behavior and rangeland use. The goals of the research will be to develop additional methods to

reduce wild horse population growth and maintain herd health. The BLM will advertise an open 

request for new research proposals and consider recommendations contained in the National 

Academy of Sciences report expected in June 2013. The increase, a result of the tough choices 

made in the 2013 Budget, invests in R&D to protect the health and environment of the Nation.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 64

PROGRAM OVERVIEW

The BLM‘s WHB Management Program is responsible for:

Implementing the Wild Free-Roaming Horses and Burros Act of 1971, which requires the 

protection, management, and control of wild free-roaming horses and burros in a manner 

designed to achieve and maintain a thriving natural ecological balance on the public 

lands.

Maintaining a current inventory of wild free-roaming horses and burros on prescribed 

Herd Management Areas (HMA).

Establishing Appropriate Management Levels (AML) in balance with the ecosystem and 

other uses.

Managing wild horse and burro populations on the range and monitoring the animals and 

their habitat.

Determining whether AMLs should be achieved by removal, fertility control measures, or 

a combination of both. Current BLM policy is to not euthanize animals as a means of 

population control.

Maintaining healthy herds and healthy rangelands by removing excess animals and 

attempting to reduce population growth rates using options such as fertility control.

Assisting the United States Forest Service with the operational aspects of wild horse and 

burro management on Forest Service lands.

Strategy for Managing Wild Horse and Burro Populations

The BLM is continuing to develop a strategy of fundamental reforms in managing the wild 

horses and burros on public lands. The goals of the strategy include:

Reducing Gathers. The BLM will reduce the annual number of wild horses gathered 

during 2012 and 2013, compared to the 2011, while the National Academy of Sciences 

(NAS) continues its independent, technical analysis of the WH&B Program and makes

recommendations regarding future WH&B management and the need for new research.

Reducing Holding Costs. The BLM will acquire additional less expensive long term 

holding facilities and partnership eco-sanctuaries to offset short term holding costs for 

wild horses removed from public rangelands. 

Reducing Population Growth. In 2012 and 2013, the BLM will increase the number of 

animals treated with fertility control and other population growth suppression methods 

compared to 2010. BLM expects that the National Academy of Sciences will make 

recommendations to guide future fertility control and additional population growth 

suppression efforts. In addition, the Budget requests a funding increase of $2.0 million 

in 2013, for a scientifically-based research program to develop new drugs or methods of 

fertility control. 

Strengthening Humane Animal Care and Handling Practices. The BLM will continue

appropriate controls in contracts and policies to strengthen humane animal care and 

handling practices. In 2012, the BLM will: finalize the development of a Comprehensive 

Animal Welfare Program that will be used to establish program wide Standard Operating 

Procedures (SOP)‘s; 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.

Promoting Volunteerism in the Management of Wild Horses. The BLM is increasing 

engagement of the public by enhancing public outreach, recruiting local volunteers and 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 65

organizations to assist in monitoring the health of the rangelands where animals roam, 

and encouraging partnerships to increase herd-related ecotourism. 

Improving Transparency and Openness. The BLM has a fundamental commitment to 

transparency in all facets of the wild horse and burro program. This includes .providing 

public viewing opportunities during gathers and at short-term corrals and long–term care 

facilities without compromising the safety of staff, members of the public, or the animals.

The BLM is also committed to a proactive public information system that is both accurate

and prompt.

Critical Factors

Critical factors affecting the efficiency of the Wild Horse and Burro Program include:

The acquisition of additional, new cost effective long-term holding and partnership ecosanctuaries.

Increased fuel and hay costs experienced in 2012 will continue to affect short-term 

holding costs.

Wild horse and burro herds have limited natural predators, thus herds can increase at a 

rate of 20 percent each year and double in size every four years.

Current wild horse and burro populations exceed appropriate management levels (AML) 

in many herd management areas. AML occurs when the number of wild horses and 

burros is in balance with other public land uses, within the capacity of the range to 

sustain the animals, and avoids damage to the rangelands.

Public scrutiny of gather and removal methods has increased the public profile of the 

program. The BLM is experiencing increases in litigation, correspondence, Freedom of 

Information Act (FOIA) requests and the need to provide increased personnel at gathers 

to host public and media visitation.

Adoptions will increase by offering more trained animals; however removals continue to 

exceed numbers sold and adopted, increasing BLM ̳s need and costs to provide lifetime 

care.

Time restrictions for administering fertility control and the increased difficulty in 

recapturing treated mares for retreatment.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 66

Note: Figures in this table are projected as of December 20, 2011.

2013 PROGRAM PERFORMANCE

In 2012 and 2013, BLM will decrease the number of wild horses and burros permanently 

removed from the range, increase adoptions and reduce short-term holding costs by acquiring 

additional long-term holding contracts and/or eco-sanctuaries. The 2013 planned performance 

includes:

Removal of 7,600 excess WHB as well as additional animals through emergency 

gathers to protect public health and safety (i.e., animals on the highway, animals in 

residential areas, causing damage to crops).

Adoption of 4,200 animals through BLM adoptions and partnerships such as the 

Mustang Heritage Foundation. 

Application of population growth suppression techniques during most gathers. These 

techniques include applications of fertility control to mares, releasing geldings to the 

range in place of mares and adjusting sex ratios to favor males.

Continuation of ongoing research and study efforts being conducted by the U.S. 

Geological Survey and the University of Toledo. These efforts examine potential longer 

FY 2010 FY 2011 FY 2012 FY 2013

Request

Enacted Funding ($ in thousands) $63,986 $75,753 $74,888 $77,068

Adoptions 3,029 2,888 4,200 4,200

Total Removals 11,041 8,965 7,600 7,600

Animals in Holding (Sep 30) 37,799 41,245 44,124 46,751

0

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

90,000

Wild Horse & Burro Funding/Removals / 

Holding/Adoptions
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 67

lasting fertility control agents, intended to aid in reducing population growth. Implement 

new studies recommended by the National Academy of Sciences report expected in 

June 2013.

Undertake new research on contraception and population growth suppression methods 

for males and/or females that may include studying the effects on herd genetics, animal 

behavior and rangeland use.

Continue Eco-sanctuaries Assistance Agreements or new contracts to care for animals 

in short-term holding corrals and long-term holding pastures.

Maintain and increase existing levels of herd management monitoring, population 

inventory, and post-adoption compliance inspections.

Continue implementation of the Comprehensive Animal Welfare Program.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 68

Performance Overview

WILD HORSE AND BURRO MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife 

refuges, and BLM lands. 

Supporting Bureau Measures

Percent of Wild Horse and Burro 

Herd Management Areas (HMAs) 

achieving appropriate management 

levels. (BUR)

55%

109/ 199

44%

78/ 180

41%

74/ 179

39% 

69/179

39% 

69/179

39% 

69/179

31% 

55/179 -8% 31% 55/179

Comment: In 2013, the BLM Strategy aims to maintain the existing number of wild horses and burros on the range. The BLM will continue to remove 7,600 animals and 

increase applications of population growth suppression methods. This methodology will likely decrease the number of HMAs at AML, because most removals will be 

conducted in priority HMAs that far exceed AML. In addition, population growth suppression methods should slow population rates of increase but will not decrease the 

number of animals on the range. Program activities that will contribute to the measure include expenditures for research to develop longer acting fertility control agents, 

evaluation of other population growth suppression methods, and new research that may be recommended by the National Academy of Sciences.

Cumulative number of Herd 

Management Areas (HMAs) treated, 

or where population suppression 

techniques were conducted. (BUR) 

New 

Measure 

in 2012

New 

Measure 

in 2012

New 

Measure 

in 2012

New 

Measure 

in 2012

New 

Measure 

in 2012

Baseline to 

be 

Established

16% 

28/179 N/A Baseline Established
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 69

Activity: Wildlife and Fisheries Management

2013 Change

Fixed 

Costs & Program from

2011 2012

Related 

Changes Changes Budget 2012 Enacted

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-)

Wildlife Mgmt. $ 37,430 36,914 +261 +15,000 52,175 +15,261

FTE 222 222 0 +3 225 +3

Fisheries 

Mgmt. $ 13,599 13,333 +107 0 13,440 +107

FTE 103 103 0 0 103 0

Total Activity $ 51,029 50,247 +368 +15,000 65,615 +15,368

FTE 325 325 0 +3 328 +3

The 2013 budget request for the Wildlife and Fisheries Management activity is $65,615,000 and 

328 FTE, a net program change of $15,000,000 and 3 FTE from the 2012 enacted level. 

ACTIVITY DESCRIPTION

The Wildlife and Fisheries Management activity maintains and restores fish, wildlife, and their 

habitats by conserving and monitoring habitat conditions, conducting inventories of fish and 

wildlife resources, and developing cooperative management plans, while providing for 

environmentally responsible recreation and commercial uses. Funding for this program supports 

the staff that develops program policy and projects at all levels within the BLM. Management 

actions emphasize on-the ground and in-the-water actions that measurably increase the health 

of fish and wildlife populations and reduce the need to federally list species of fish and wildlife.

This activity supports the Cooperative Landscape Conservation activities and the Healthy 

Landscapes program by improving the health of watersheds and sustaining biological 

communities. The overall goal of the fisheries and wildlife programs is to restore and maintain 

proper functioning conditions in aquatic, riparian, wetland and upland systems managed by 

BLM, with the goal of providing suitable conditions for biological communities to flourish. The 

BLM proposes an increase of $15,000,000 to implement broad-scale sage-grouse conservation 

activities. 

The lands BLM manages cover numerous types of wildlife habitat. The BLM‘s management 

responsibilities encompass a large percentage of America‘s western landscapes, including 

major portions of all of the American desert ecosystems, which include the sagebrush biome, 

and portions of the Colorado Plateau. The BLM is also responsible for managing 15 million 

acres of short and mid-grass prairies, and nearly 55 million acres of forest and woodland 

habitats. In addition, the BLM's diverse land base includes over 117,000 miles of fishable 

streams and rivers, over three million acres of lakes and reservoirs, and an abundance of 

wetlands. Because of their isolation, BLM lands include many of America‘s rarest habitats, 

which support many rare plant and animal communities.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 70

BLM‘s Fish and Wildlife Management program personnel play a significant role in BLM‘s 

multiple use mission. In-depth knowledge of fish and wildlife resources, combined with 

knowledge and experience in managing habitats, are key strengths of the biologists that work 

for the BLM. In addition, their experience and expertise regarding environmental laws and 

regulations is critical to BLM‘s ability to effectively manage commercial uses on public lands, 

while minimizing environmental damage to resources.

Definition Proper Functioning Condition

Riparian-wetland areas are functioning properly when adequate vegetation, landform, or large woody debris is 

present to dissipate stream energy associated with high water flows, thereby reducing erosion and improving water 

quality; filter sediment, capture bed load, and aid floodplain development, improve flood-water retention and 

groundwater recharge; develop root masses that stabilize stream banks against cutting action; develop diverse pond 

and channel characteristics to provide the habitat and the water depth, duration, and temperature necessary for fish 

production, waterfowl breeding, and other uses; and support greater biodiversity. The functioning condition of riparian 

wetland areas is a result of interaction among geology, soil, water, and vegetation.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 71

Activity: Wildlife and Fisheries Management

Subactivity: Wildlife Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Wildlife Mgt. ($000) 37,430 36,914 +261 +15,000 52,175 +15,261

FTE 222 222 0 +3 225 +3

Other Major Resources:

Trust Funds - Sikes Act (7124) 293 227 0 0 227 0

Summary of 2013 Program Changes for Wildlife Management

Request Component ($000) FTE

Program Changes:

• Sage Grouse Conservation Activities +15,000 +3

TOTAL, Program Changes +15,000 +3

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Wildlife Management program is $52,175,000 and 225 FTE, a 

program change of +$15,000,000 and +3 FTE over the 2012 enacted level.

Sage-grouse Conservation Activities (+$15,000,000/ +3 FTE) – The BLM proposes an 

increase of $15,000,000 to implement broad-scale sage-grouse conservation activities.

Specifically, this funding would be used for the following planning and conservation activities.

Regulatory Certainty for Future Land Use Planning 

(+$10.0 million and +3 FTE) - BLM will put in place the 

necessary mechanisms, through the land use planning 

process, to address conservation of sage-grouse before 

the 2015 deadline for FWS to make a final decision on 

whether or not to list the sage grouse. This will require 

the amendment or revision of 98 land use plans in 68 

planning areas within the range of sage-grouse to 

designate priority sage-grouse habitat. Within these 

priority areas BLM will set disturbance thresholds for 

energy and mineral development, develop and implement specific best management practices 

for livestock grazing, establish restrictions for OHV use and other recreational activities, and 

implement aggressive fire suppression and post fore-fire restoration tactics. Amending these 

land use plans to provide the regulatory certainty requested by the U.S. Fish and Wildlife

Service (FWS) will involve the following actions:

• Land Use Plan amendments: +$6.5 million

• Landscape-level project Environmental Assessments: +$2.0 million

• Travel management planning: +$1.0 million

Sage-grouse strutting on public land.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 72

• Candidate Conservation Agreement development: +$0.5 million

(Note: resource management plan amendments are funded by the benefiting subactivities while 

new plan starts are funded in the Resource Management Planning subactivity).

Habitat Restoration and Improvement (+$2.5 million) - Conduct on the ground restoration 

projects and improve key greater sage grouse habitat through activities such as: restoration 

potential mapping; pinyon/juniper mechanical treatment; invasive species control; mechanical 

sagebrush thinning; riparian restoration; sagebrush and other native plant seeding; installation 

of fuel breaks and other fuels management; and fence removal and marking to reduce mortality.

Habitat Mapping, Assessment and Monitoring (+$2.5 million) - In 2013, the BLM plans to 

continue the intensification of data collection across thirty populations of greater sage-grouse in 

the west to begin to understand the impacts of use authorizations across sage-grouse habitats. 

In addition, GIS support and data management will be necessary in both the short and long term

as the BLM transitions from intensive, large-scale planning to landscape-level and programspecific management to ensure the long-term sustainability of sage-grouse and the suite of 

species that are dependent on sagebrush for their survival. The increase will help delineate 

areas of highest priority habitat across the range of the sage grouse.

More information on the sage grouse initiative can be found in the Initiatives section.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 73

Program Change 

WILDLIFE MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, including States. 

Strategic Plan Measures

Number of DOI acres restored to the 

condition specified in management 

plans. (SP)

1,000,156 950,157 1,136,759 700,000 848,477 485,119 511,000 +25,881 700,000 

Comment: Increased funding received will restore and improve key greater sage-grouse habitat for the benefit of sage grouse populations. The change in performance from FY 12 to 

the FY 13 President‘s Budget is attributed to $2.5 million to be used for Habitat Restoration and Improvement.

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 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 74

Sage-grouse Initiative: Sage-grouse currently occupy only an estimated 56 

percent of their historic habitat. More than half of the remaining sage-grouse habitat is 

on public land managed by the Bureau of Land Management (BLM). The decline in 

sage-grouse populations across their historic range over the past three decades 

spawned a major collaborative effort which began several years ago to protect and 

restore sage-grouse habitats and to rebuild grouse populations. That effort includes the 

western state wildlife agencies, the Western Governors‘ Association, and the BLM, along with a full 

range of public land users and wildlife conservation interests.

The BLM must be successful in accomplishing necessary land use plan amendments and continue 

ongoing interagency cooperative sage-grouse and sagebrush conservation efforts over the next three 

years to address the threats identified by the U.S. Fish and Wildlife Service in their 2010 ―warranted, 

but precluded‖ listing decision. Failure to do so will result in the potential listing of the species under 

Endangered Species Act (ESA). Such a listing would have 

significant national implications, including major socioeconomic impacts to on-going and future uses of thousands 

of square miles of public, state, and private lands across the 

west, including livestock grazing and energy production. A 

listing of the sage-grouse would impact virtually all public 

land use authorizations across most or part of eleven western 

states, shifting the BLM‘s focus from conservation of the 

species to ESA compliance.

BLM has over 50 percent of the species habitat. BLM‘s 

actions to amend Land Use Plans to incorporate adequate 

conservation measures presents an excellent opportunity to 

conserve the species. This would provide the regulatory 

certainty that the FWS is requesting and greatly reduce the 

probability of listing of the sage-grouse. This will involve an intensive, large-scale planning effort 

through FY 2015 that will be closely coordinated with FWS, state fish and wildlife agencies, and other 

stakeholders. This effort will also involve a series of interim policy directives to the field to ensure that 

sage-grouse habitat is conserved pending Land Use Plan amendments.

The Planning subactivity will incorporate sage-grouse habitat conservation measures into land use 

plans of 68 planning units in California, Oregon, Idaho, Nevada, Utah, Colorado, Wyoming, Montana, 

North Dakota, and South Dakota. Land use plans will incorporate the regulatory mechanisms through 

plan amendments, revisions, and supplements. Please see the Resource Management Planning 

Chapter write-up for further information.

Pilar Ziegler, a BLM wildlife biologist, 

and a USGS field technician tag sagegrouse.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 75

WILDLIFE MANAGEMENT PROGRAM

PROGRAM OVERVIEW

Program Components

Over 3,000 species of wildlife occur on BLM‘s 248million acres, dispersed over some of the 

Nation‘s most ecologically diverse and essential wildlife habitat. BLM-managed lands are vital to 

big game, upland game, waterfowl, shorebirds, songbirds, raptors and hundreds of species of 

non-game mammals, reptiles, and amphibians.

The BLM Wildlife Program is responsible for maintaining, restoring, and conserving wildlife 

habitat as an integral part of BLM‘s multiple use mission and priorities that include:

Implementing and maintaining habitat improvement projects.

Implementing conservation actions in support of sensitive species and their habitats.

Monitoring to ensure the effectiveness of habitat management actions.

Collecting inventory data to provide a solid foundation to support Land Use Planning and 

ensure Land Use Plan implementation.

Implementing on-the-ground habitat conservation and restoration treatments on a 

landscape scale in priority focal areas.

Critical Factors

Wildlife habitat loss and fragmentation, due to both anthropogenic (e.g. urban 

expansion, energy development) and non-anthropogenic (drought, disease) factors, and 

exacerbated by the effects of land health stressors, are seemingly outpacing habitat 

restoration and enhancement activities, resulting in significant declines for some wildlife 

species.

Authorization of land uses impacting wildlife habitat may significantly increase in 

conjunction with new energy initiatives. 

Means and Strategies

Beginning in 2010, the BLM has been undertaking several rapid ecoregional

assessments to better address the management of wildlife and habitat resources at a 

scale equivalent to the intensified broad-scale land use pressures and associated 

stressors, including catastrophic wild fire and associated degradation and conversion of 

native vegetation communities, disease, as well as the compounding effects of land 

health stressors. The first results from assessments will be available in early spring of 

2012.

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 declines. 

Once completed, rapid ecoregional assessments will aid in identification of the highest 

priority areas for wildlife habitat protection and enhancement at an ecoregional scale 

consistent with the range and distribution of many wildlife species, transcending 

currently defined administrative boundaries.

In 2010, the BLM identified the highest priority wildlife-related data layers needed. The 

first data layer initiated was a range-wide greater sage-grouse ―breeding bird density‖ 

map, in coordination with State fish and wildlife agencies. The sage-grouse breeding 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 76

bird density map is based upon a standardized methodology and is a first step for 

identifying the highest priority areas for sage-grouse habitat protection that are 

necessary to ensure sustainable sage-grouse populations. This information now guides 

efforts for specific habitat assessment work in partnership with agencies such as the 

Natural Resource Conservation Service (NRCS).

In 2011, the BLM began working with State and Federal partners under the umbrella of a 

2008 Memoranda of Understanding (MOU), to identify areas of highest conservation 

value for greater sage-grouse in order that the collective agencies direct available 

funding and management attention where conservation and management actions will 

have the most significant benefit. This MOU contains work items that justify continued 

monitoring and assessment of sage-grouse habitat into 2013.

The majority of species and habitats present on BLM lands do not occur exclusively on 

lands administered by the BLM. Additionally, BLM land ownership is not spatially 

contiguous, both at the regional and site scales. Therefore, BLM works closely with its 

partners across jurisdictional boundaries so that wildlife conservation measures applied 

on BLM lands are effective. The BLM currently has Memoranda of Understanding in 

place with the Western Association of Fish and Wildlife Agencies (for sagebrush habitat 

management), the Association of Fish and Wildlife Agencies (for coordination of energy 

and wildlife issues), as well as MOUs pledging BLM support in the North American Bird 

Conservation Initiative, Partners in Amphibian and Reptile Conservation and the North 

American Pollinator Protection Campaign. For example, as a result of the 

aforementioned MOUs, the BLM has:

o Developed standardized regionally-specific habitat management guidelines for 

reptile and amphibian habitats that have been distributed to all BLM Field offices.

o Supported development and implementation of standardized avian monitoring 

protocols to ascertain population trends across jurisdictional boundaries.

o Improved coordination and collaboration with important partner organizations 

including Federal, State, and non-governmental organizations.

Consistent with BLM policy direction, the BLM works closely with state fish and wildlife 

agencies on wildlife resource issues, in particular in support and implementation of State 

Wildlife Action Plans, which establish broad-scale wildlife priorities and identify the 

species of greatest conservation need as well as the habitats necessary for their 

protection. 

Funding History and Other Funding Sources

Annually the Wildlife Program expends approximately 75 percent of received funding on 

―on-the-ground‖ vegetation treatments, habitat enhancement projects, and associated 

monitoring to restore wildlife habitat, and to confirm the effectiveness of management 

actions undertaken. The remaining 25 percent of funding is spent primarily on inventory 

and planning activities. 

Much of the Wildlife Program work is accomplished through leveraging of additional 

dollars, equipment, and labor from Federal and non-Federal partners with shared 

wildlife-related objectives.

Accomplishments

Sage-grouse Habitat Monitoring – BLM is using $2,000,000 in fiscal year 2012 to 

continue implementing broad-scale sage-grouse habitat monitoring activities to ascertain 

the effectiveness of habitat management and the effect of land use authorizations. The 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 77

BLM initiated a range-wide greater sage-grouse ―breeding bird density‖ map in 2010 as 

a first step of these monitoring activities. Additional monitoring was conducted in 2011. 

Continuing this broad-scale monitoring effort will fill critical data gaps necessary for 

habitat protection and restoration. Habitat monitoring will provide for an adaptive 

management platform that will support the BLM‘s multiple-land use mission, including 

energy development, grazing, and recreation. The monitoring protocol continues to 

identify baseline vegetation conditions relative to sage-grouse habitat goals and 

objectives so that the BLM can evaluate the effectiveness of its management.

Nevada Bi-State Landscape Restoration Project - The Carson City District Office 

(CCDO) project is a landscape-scale, multi-year project focused on the Bi-State distinct 

population segment (DPS) of greater sage-grouse. This 900,000-acre project area 

includes three sage-grouse population management units (PMU) located across four 

counties. The CCDO is engaging in a variety of on-the-ground partnerships to collect 

sage-grouse data, vegetation data, road and trail data, and conduct habitat restoration 

work to support sage-grouse conservation and management. Partners include the 

United States Geological Survey (USGS), Nevada Department of Wildlife, NRCS, Great 

Basin Bird Observatory (GBBO), Chicago Botanic Garden (CBG), and the Carson Valley 

Chukar Club. 

2013 PROGRAM PERFORMANCE

In 2013, the BLM‘s Wildlife Program will: 

Continue sage grouse conservation activities as described above. 

Continue to develop wildlife indicators that more accurately reflect the variety and 

condition of wildlife species and habitat across the system of public lands. The indicators 

derived from this work will be critical to the assessments currently underway for 

development of resource management plans, renewable energy planning, identification 

and development of focal resource areas, and to support cooperative landscape 

conservation. 

Emphasize wildlife habitat improvements in order to reduce the number of species of 

concern failing to meet objectives, while maintaining a sufficient level of monitoring to 

ensure the effectiveness of those improvements.

Emphasize performance of actions under agency-endorsed plans for the purpose of 

conserving non-federally listed species to prevent the need for listing under the 

Endangered Species Act.

Accomplish substantial habitat assessment and monitoring to 1) provide an 

understanding of range and distribution of priority species to describe existing conditions 

and 2) monitor to determine if management decisions have been implemented and 

objectives are being met.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 78
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 79

PLANT CONSERVATION PROGRAM

PROGRAM OVERVIEW

Program Components

BLM lands contain a diversity of native plant communities that are the habitats for wildlife such 

as Sage-Grouse and Desert Tortoise. These native plant communities make up over 50 

ecoregions across 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 on public lands. 

The program consists of the following elements:

Identifying, evaluating, and protecting rare 

plants on public lands, including NLCS units.

Understanding the effects of climate change on 

native plant species and native plant 

communities on public land.

Developing genetically appropriate native plant 

materials for restoring and maintaining habitat 

for sage-grouse and other wildlife species.

Providing leadership and infrastructure on 

native plant materials development by 

coordinating with all BLM programs to ensure 

native plant material needs are met. 

Seed collection, curation and storage.

Developing seed transfer zones and guidelines.

Monitoring to ensure effectiveness of native plant materials that have been developed.

Implementing on-the-ground habitat conservation and restoration treatments on a 

landscape scale.

Enhancing partnerships and volunteer opportunities for plant conservation. 

For more information on BLM‘s Plant Conservation Program please see the following websites: 

http://www.blm.gov/wo/st/en/prog/more/fish wildlife_and/plants.html

BLM Native Plant Materials Development:

http://www.blm.gov/wo/st/en/prog/more/fish wildlife_and/plants/1.html

Colorado Plateau Native Plant Program:

http://www.blm.gov/ut/st/en/prog/more/CPNPP.html

Great Basin Native Plant Selection and Increase Program:

http://www.fs.fed.us/rm/boise/research/shrub/greatbasin.shtml

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.

A golden field of desert marigold (Baileya 

multiradiata). This population was 

collected as part of Seeds of Success.

Photo by Mike Howard, BLM-NM.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 80

Native plant materials, like agronomic crops, take an average of 10 to 20 years to develop 

as consistent and reliable commercially available species. 

Means and Strategies

The Plant Conservation Program aligns with Administration priorities and coordinates 

with other BLM programs and partner organizations to achieve integrated vegetation 

management at the landscape level.

The Plant Conservation Program supports the Department‘s Youth and America‘s Great 

Outdoors Initiatives by employing recent college graduates in the biological and 

environmental sciences, through the Conservation and Land Management Internship 

Program to assist the Bureau with the Seeds of Success Program. The program also 

works with partners to educate America‘s youth through the development of a high 

school curriculum that BLM will use to develop elementary and middle school curricula 

for younger students.

The Plant Conservation Program supports the renewable and conventional energy 

program 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.

2013 PROGRAM PERFORMANCE

In 2013, BLM will continue to lead regional interagency native plant programs in the Colorado 

Plateau, Great Basin, Pacific Northwest and the Mohave Desert. These programs will develop 

the native plant seed to be used within these ecoregions. The BLM Plant Conservation Program 

will work with other Federal agencies to develop a national interagency strategy for native plant 

materials development and will continue to host the multi-agency contract for increasing native 

grass and forb seed in 11 Western states. 

Over the past 10 years, the BLM has purchased more than 26 million pounds of seed, which is 

an average of 2.6 million pounds of seed annually, through the consolidated seed buys. In 2013, 

Ely Seed Warehouse, funded by the Southern Nevada Public Lands Management Act, will be 

completed and ready for operation. Storage of more than one million pounds of seed within the 

warehouse will enable the Bureau to buy seed when the price is lower than during high fire 

years. The Bureau will continue to work with the more than 500 partners in this program, 

including the seed industry, to develop native seed that is necessary for sustainably managing

and restoring public lands into the future.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 81

Performance Overview

WILDLIFE MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, including States. 

Strategic Plan Measures

Number of DOI acres restored to the 

condition specified in management 

plans. (SP)

1,000,156 950,157 1,136,759 950,000 848,477 485,119 511,000 +25,881 700,000 

Comment: Increased funding received will restore and improve key greater sage-grouse habitat for the benefit of sage grouse populations. The change in performance from FY 12 to 

the FY 13 President‘s Budget is attributed to $2.5 million to be used for Habitat Restoration and Improvement.

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. 

Supporting Bureau Measures

Percent of populations of species of 

management concern that are managed 

to desired condition. (BUR)

54% 

281/ 519

51% 

306/ 595

52% 

310/ 595

52% 

312/ 595

52% 

312/ 595

52% 

312/ 595

52% 

312/ 595 0

52% 

312/ 595

Comment: Results for managing species of management concern to desired condition require multi-year efforts that may show results from prior years regardless of a current year 

change in funding.

Contributing Programs: Wildlife and Threatened and Endangered Species Management provide results for this measure. Other contributors include: O&C Resources; Challenge Cost 

Share; Fisheries Management; Reimbursable and Contributed Funds; Land Resources; and Other Resources.

Number of acres of habitat restored or 

enhanced that directly support ESAlisted and Bureau sensitive species 

conservation or recovery. (BUR) 

324,113 284,261 266,174 250,000 295,799 250,000 250,000 0 250,000

Comment: Acres of habitat restored or enhanced is based on actual projects planned which will vary each year. 

Contributing Programs: Wildlife; Fisheries; T&E Management; and O&C Wildlife Management. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 82

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Chapter VIII – Management of Lands and Resources Page VIII - 83

Activity: Wildlife and Fisheries Management

Subactivity: Fisheries Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget

Request

Fisheries Mgt. ($000) 13,599 13,333 +107 0 13,440 +107

FTE 103 103 0 0 103 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Fisheries Management Program is $13,440 and 103 FTEs.

PROGRAM OVERVIEW

Program Components

The BLM Fisheries program provides the framework for assessing, managing, and monitoring 

over 117,000 miles of fish-bearing streams and almost three million acres of reservoirs and 

natural lakes. BLM‘s rivers, lakes, and streams are of national ecological, cultural, and 

recreational importance. These fish-bearing waters 

support diverse habitat for hundreds of native fish 

species, support subsistence fisheries that sustain 

traditional Native American cultural practices, and 

provide exceptional recreational opportunities for the 

public. These waters function in diverse landscapes and 

serve as a good indicator of ecosystem function. The 

BLM Fisheries Management Program is responsible for:

Maintaining, restoring, and conserving aquaticrelated species and habitats consistent with 

BLM‘s multiple use mission and priorities.

Implementing lake, wetland, stream, and 

riparian treatments and projects.

Assisting in the design of other BLM program 

activities to ensure mitigation of actions affecting fish, other aquatic species, and their 

habitat as appropriate.

Monitoring to ensure the effectiveness of management actions, including subsistence 

actions on BLM land in Alaska through the Federal Subsistence Management Program. 

Participating in angler activities with State fish and game agencies through various 

Memoranda of Understanding and Memoranda of Agreement. This activity generates 

cooperation among federal, state, and local levels for planning and implementing 

An excavator installs a rock structure and 

large woody in the American River, ID to 

restore aquatic habitat, summer 2011.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 84

mutually beneficial activities related to hunting, fishing, and shooting sports conducted 

on Federal lands.

Implementing stream and wetland conservation and restoration treatments in focused 

areas under the Healthy Landscapes program such as the Northern Great Basin and 

Range.

Critical Factors

The following represent the primary challenges facing the Fisheries program:

Land health stressors, such as those associated with climate change, can be key threats 

to fish and fish habitat as they force changes to the aquatic habitat on BLM lands. 

Specifically drought, changes in runoff and flow patterns, and the increasing risk of 

catastrophic wildfire individually and collectively impact aquatic resources. The effects of 

these land health stressors place higher strain upon aquatic ecosystems in the arid west, 

and a greater focus on the conservation of these habitats will be essential for their long 

term persistence.

The priority for developing renewable energy (hydropower, wind, solar, and geothermal) 

as part of the New Energy Frontier will place increasing demands on the fisheries 

workforce to ensure sites of high potential for development, and the transmission 

corridors linking these sites to the energy grid, are developed in a responsible manner 

consistent with the needs of aquatic resources. 

The licensing and relicensing of hydropower projects creates a significant opportunity to 

direct the development of license conditions to conserve fisheries resources so that 

federal trust responsibilities are met for the next 30-50 years.

Addressing the need for fish-passable culvert replacements. Culvert upgrades result in 

the reconnection of high quality habitat for numerous aquatic species. Culvert 

restorations are extremely efficient in that they result in the restoration of a large amount 

of habitat, while only resulting in a small construction footprint. Culvert fish passage 

projects have the ability to return fish to mature, functioning riparian and in-stream 

habitats. 

Addressing threats from failure of non-system roads. Catastrophic sediment inputs can 

result where historic, poorly planned roads made of soft fill material cannot pass the 

required amount of water downstream. Ponding occurs as the standing water upstream 

of the road overtops the road prism resulting in mass wasting, or catastrophic, erosion 

filling the downstream fish habitat with sediment. 

The Fisheries program‘s personnel, at both the national and state levels are working with 

counterparts in state and other federal agencies to continue addressing increasing 

threats from aquatic invasive species, such as the quagga mussel, New Zealand 

mudsnail, and the zebra mussel. Personnel are developing strategies and programs to 

minimize the spread of these aquatic invasive species. Aquatic invasive species are a 

threat to the viability and longevity of the native fish communities. They transform entire 

foodwebs, have the potential to dominant the biological community, and also have the 

potential to clog reservoir water pipes thereby reducing needed downstream flow to 

communities. BLM personnel in the Fisheries program have recently become members 

of the interagency Aquatic Nuisance Species Task Force and their Western Regional 

Panel. Membership will better assist aquatic invasive species coordination because the 

BLM shares management authority of aquatic resources throughout the West.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 85

Means and Strategies

The following represent the primary means by which the Fisheries program plans to meet its 

current and future challenges:

Working with other programs to create a lands treatment module to document where 

treatments take place on the landscape and the effectiveness of those treatments.

Working to educate youth about the importance and complexity of fisheries and fisheries 

habitat through programs such as the American Fisheries Society Hutton Program and 

the Chicago Botanical Society.

Continuing to stay active with ten of The National Fish Habitat Partnership recognized 

partners. These partnerships include the Reservoir Fish Habitat Partnership, the 

California Fish Passage Forum, the Desert Fish Habitat Partnership, the Driftless Area 

Restoration Effort, the Great Lakes Basin Fish Habitat Partnership, the Great Plains Fish 

Habitat Partnership, the Mat-Su Basin Salmon Habitat Partnership, the Southwest 

Alaska Salmon Habitat Partnership, and the Western Native Trout Initiative.

Combating the ecological and economic effects in many BLM watersheds caused by 

aquatic nuisance species, the BLM joined forces in 2008 with the Aquatic Nuisance 

Species (ANS) Task Force and their Western Regional Panel. Since our involvement, 

several BLM offices have been active with individual State programs to combat the rising 

ANS threat to BLM lands.

Finalizing aquatic habitat assessment in the Upper Colorado River Basin using Trout 

Unlimited‘s modified Conservation Success Index methodology. This work is part of the 

on-going Assistance Agreement and will be utilized in other BLM basins for critical 

aquatic assessments.

2013 PROGRAM PERFORMANCE

In fiscal year 2013, the Fisheries program will: continue to support the mission-critical goals of 

the BLM by maintaining and conserving aquatic-related species and habitats and restoring 

priority habitats on an as-needed basis. Approximately 34 percent of Fisheries funding ($4.6

million) supports priority proactive fish habitat conservation in support of the National Fish 

Habitat Partnership (NFHP). The Plan is a state-led development supported through the 

Association of Fish and Wildlife Agencies in cooperation with key government agencies and 

conservation partners. The Plan is the most comprehensive effort ever attempted to conserve 

aquatic habitat across the country. For inland fisheries resources, the BLM is active with ten 

NFHP partnerships that serve as primary vehicles for identifying and prioritizing habitat actions 

within the range of inland fish species. The BLM will play a significant role in the identification 

and implementation of these actions because of land ownership patterns. Salmon and 

steelhead fisheries resources will remain a priority for those geographic areas within the range 

of anadromy.

The BLM Fisheries Program will continue to work closely with the Aquatic Nuisance Species 

Task Force, with the Association of Fish and Wildlife Agencies and the Western Association of 

Fish and Wildlife Agencies, the Trout Unlimited, and the American Fisheries Society. The 

Fisheries Program will also provide expertise with internal programs such as Healthy

Landscapes; Assessment, Inventory and Monitoring Strategy; and the Rapid Ecoregional 

Assessments. All of these initiatives incorporate fisheries resources as essential habitat and as 

indicators of ecosystem health. The Fisheries program will also continue its strong relationship 

with diverse groups for project development, leveraging funding, and personnel development.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 86

Program Overview

FISHERIES MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Longterm 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that 

comprise our national parks, wildlife refuges, and BLM lands. 

Strategic Plan Measure

Percent of invasive animal 

species populations that are 

controlled. (SP)

New

in 2011

New

in 2011

New

in 2011

Baseline to 

be 

established

8% 

15/182

8% 

15/182

8% 

15/198 0% 8% 15/198

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, 

including States. 

Supporting Bureau Measure

Number of (stream/shoreline) 

miles of habitat restored or 

enhanced that directly 

support ESA-listed and 

Bureau sensitive species 

conservation or recovery. 

(BUR)

253 314 253 225 418 225 225 0 225

Comment: Restoring and enhancing miles of habitat is a vital step to achieving acres in desired condition. Miles of habitat restored or 

enhanced is based on actual projects planned which will vary between years. 

Contributing Programs: Fisheries; Wildlife Management; Threatened and Endangered Species Management; and O&C Wildlife Management. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 87

Activity: Threatened and Endangered Species 

Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs &

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Threatened & Endangered 

Species Mgt. ($000) 22,159 21,633 +179 0 21,812 +179

FTE 164 164 0 0 164 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Threatened and Endangered Species Program is $21,812,000

and 164 FTEs.

PROGRAM OVERVIEW

The Bureau of Land Management‘s Threatened and Endangered Species Program‘s (T&E 

Program) primary goal is to recover federally-listed species and preclude the listing of candidate 

species. The program also provides support for conservation of non-listed, rare Bureau 

Sensitive plant species. The long-term program vision is to achieve species recovery so that 

protection under the Endangered Species Act (ESA) is no longer required, and to implement 

conservation programs for Bureau Sensitive plants and candidates so that listing under the ESA 

is unnecessary.

Program Components

Over 250 species listed under the ESA have been found to occur on BLM-administered lands; 

and at least 32 species found on BLM-administered lands have been identified as candidates 

for federal protection. BLM-administered lands are prime habitat for over 800 rare plant species, 

and provide the only known habitat for more than 450 species of rare or listed plants and 

animals. 

BLM‘s successful conservation of these species requires implementation of the following tasks:

Cooperative planning with other stakeholders in the preparation of recovery plans or 

conservation strategies for targeted species.

Implementing actions identified in species conservation and recovery plans.

Monitoring species populations to determine if objectives identified in species conservation 

and recovery plans are being met.

Critical Factors

It is anticipated that a number of listed species currently found on BLM lands could be extirpated 

in the next several decades due to a variety of factors affecting habitat. BLM will work to meet 

its goals of recovering federally-listed species and preventing the listing of candidate species. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 88

Means and Strategies

The following are strategies used by the BLM to manage the program:

BLM Threatened and Endangered Species Recovery Funding

In 2010, BLM established a competitive process of 

allocating funds which supports projects targeting key 

recovery actions for federally listed and candidate 

species. In just the first two years, BLM has already 

seen success, with the delisting of the Maguire Daisy 

and positioning several other species to be delisted or 

downlisted in the near future, as well. This initiative, 

launched in 2010, titled the Threatened and 

Endangered Species Recovery Fund, has awarded 

approximately $1.5 million annually, on a competitive 

basis, to primary recovery actions that culminate in a 

delisting or downlisting of a Threatened or Endangered 

species; or, removal of a species from Candidate 

consideration. In these first two years, the initiative has 

funded recovery projects for 31 species.

New Energy Frontier

The T&E Program provides support for the renewable and conventional energy program by 

providing assistance with assessing and monitoring the occurrence and distribution of listed 

species on BLM lands, developing mitigation measures, coordinating with regulatory agencies, 

and consulting under Section 7 of the Endangered Species Act (where appropriate), assisting 

with environmental reviews and assessments, and addressing any impacts.

Cooperative Landscape Conservation Initiative

The Cooperative Landscape Conservation Initiative and the BLM‘s Healthy Landscapes 

program will help the BLM‘s T&E Program assess, manage, and provide for the conservation of 

critical resources at a broad scale as a result of eco-regional assessments and landscape 

conservation cooperative efforts and products. The T&E Program also provides support for the 

initiative by assisting with the initiation of eco-regional assessments and assisting with the 

documentation of listed species occurrence, distribution and critical habitat data on BLM lands, 

and through assisting with both internal and interagency efforts.

Youth in the Great Outdoors Initiative

The T&E Program implements on-the-ground projects that either have an educational or 

outreach component to engage local youth or employ youth in conservation activities. The T&E 

Program will continue to fund the hiring of recent college graduates in the biological sciences as 

part of the Chicago Botanic Garden‘s Conservation and Land Management Internship Program.

America’s Great Outdoors

The first success, of this strategic effort, 

was the delisting of the Maguire daisy 

(Erigeron maguirei) on January 19, 2011.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 89

The T&E Program offers key criteria in selecting projects within the America‘s Great Outdoors 

initiative. The National Landscape Conservation System (NLCS) is an integral system of 

biologically diverse, wide ranging landscapes and ecosystems that listed species depend on. So

critical is the habitat provided by the NLCS units, that of the federally protected species and rare 

plants that occur on BLM lands, 155 species occur only within NLCS designated lands. An 

additional 114 species have at least 50 percent of their populations represented on NLSC lands. 

Due to the essential nature of the NLCS to threatened and endangered species conservation 

and recovery, the T&E Program will continue to support and implement management actions 

within the NLCS that benefit listed species or their habitat.

Program Collaboration and Partnerships 

The range of most of the listed species found on BLM 

lands includes lands and waters not administered by the 

agency. The recovery of listed species requires 

management at the population or metapopulation scale, 

regardless of jurisdiction lines. Extensive collaboration and 

cooperation with a number of partners, including other 

agencies and organizations, is therefore an integral 

element of the T&E Program. Conservation collaborations

typically begin with development of recovery plans, written 

under the leadership of the U.S. Fish and Wildlife Service 

or the National Marine Fisheries Service. Implementation of 

recovery actions identified in plans typically involves 

collaboration with such partners as State fish and game 

agencies, other federal agencies, and non-governmental 

agencies. 

BLM is an active participant in the Black-Footed Ferret 

Recovery Implementation Team Executive Committee. 

Members include: USFWS, USGS, NPS, USFS, TWS, 

TNC and several other NGO's 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 recolonization can take place.

In addition to recovery planning and implementation, consultation under Section 7 of the ESA is

a significant BLM endangered species management responsibility. Under the Act, the BLM must 

consult with the U.S. Fish and Wildlife Service and/or the National Marine Fisheries Service 

whenever it determines that an action it authorizes, funds, or carries out may affect a listed 

species. In fiscal year 2010, the last year for which full data is available, the BLM completed 356 

formal and 442 informal consultations under Section 7. Many of these consultations were 

funded by the programs proposing the actions, but personnel from the T&E Program provided 

guidance and expertise for the consultations.

A BLM employee releases a federally 

endangered Black-footed Ferret in 

Utah as part of Interagency efforts to 

reintroduce the species.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 90

2013 PROGRAM PERFORMANCE

In 2013, the T&E program will continue to focus on the primary goal of completing actions that 

lead to species recovery through the Threatened and Endangered Species Recovery Fund. 

BLM will, however, work on achieving greater collaboration across State and Federal 

jurisdictional boundaries by further encouraging dialogue, leveraging funds, finding efficiencies 

in staff resources, and ultimately, succeeding in innovative conservation efforts on a landscape 

scale. The T&E program‘s efforts and accomplishments towards species recovery will be 

clearly documented through the Recovery Online Activity Reporting System (ROAR), which is a 

system developed in collaboration with the FWS to track every recovery effort for all federally 

listed species on BLM lands. BLM plans to also expand this system to include Bureau Sensitive 

Species that are targets of conservation actions. 

The recovery tasks are wide-ranging in cost and scope, and include such actions as habitat

restoration, research, and re-establishment of experimental populations to name a few. BLM will

continue to emphasize completion of recovery tasks as one of the most important measures of

accomplishment within the T&E Program. BLM expects to increase accomplishments in 2013, 

as compared to 2012 in two areas. BLM expects to complete 40 T&E Species Recovery Plans 

in 2013, as compared to 35 in 2012, and BLM plans to complete 30,000 units of Vegetation 

Treatments compared to 27,000 in 2012.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 91

Performance Overview

THREATENED AND ENDANGERED SPECIES MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actua

l

2012 President's 

Budget

2013 President's 

Budget

Change from 

2012 to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, including States. 

Strategic Plan Measure

Number of threatened and endangered 

species recovery activities implemented. 

(SP) 

New

in 

2011

New

in 

2011

New

in 

2011

New

in 

2011

1,328 1,500 1,500 0 1,500

Comment: In 2011, the number of activity plans was reported instead of the number of activities. What should have been reported was the number of activities implemented, which 

was 1328.
Bureau of Land Management 2013 Budget Justifications

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Activity: Recreation Management

2013 Change

Fixed Costs & Program from

2011 2012 Related Changes Changes Budget 2012 Enacted

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-)

Wilderness 

Mgmt. $ 19,664 18,392 176 0 18,568 +176

FTE 164 159 0 0 159 0

Recreation 

Mgmt. $ 49,153 49,074 448 +2,200 51,722 +2,648

FTE 392 392 0 +2 394 +2

Total Activity $ 68,817 67,466 +624 +2,200 70,290 +2,824

FTE 556 551 0 +2 553 +2

JUSTIFICATIONS OF 2013 PROGRAM CHANGES

The FY 2013 budget request for the Recreation Management activity is $70,290,000 and 553 

FTE, a program change of +$2,200,000 and +2 FTE from the 2012 enacted level.

ACTIVITY DESCRIPTION

The Recreation Management activity supports and funds the Bureau of Land Management‘s 

(BLM) role in:

Providing resource-related recreational opportunities for a wide range of activities;

Furnishing quality visitor services;

Providing a diversity of recreation facilities, visitor centers, and competitive activities;

Identifying and protecting wilderness values;

Assuring that the public receives fair market value for any commercial ventures 

conducted on public lands; and

Collecting recreation use and entrance fees in the best interest of the general public.

These responsibilities are all encompassed by BLM‘s strategic goal to provide opportunities for 

environmentally responsible recreation.

The Recreation Management activity provides:

Recreation planning and visitor use monitoring;

Trails, access, and rivers management including off-highway vehicle (OHV), public 

access, and comprehensive travel and transportation management;

Visitor services, information, interpretation and stewardship education;

Visitor health, safety, and accessibility for persons with disabilities;

Recreation facility design, operation, and maintenance including visitor centers;

Recreation and community support partnerships including tourism and marketing;

Wilderness Management in the Nation Landscape Conservation System; and

Supporting partnerships, volunteers, and youth programs.
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Activity: Recreation Management

Subactivity: Wilderness Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Wilderness Mgt. ($000) 19,664 18,392 +176 0 18,568 +176

FTE 164 159 0 0 159 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Wilderness Management is $18,568,000 and 159 FTE.

PROGRAM OVERVIEW

Program Components

The Wilderness Management program is a part of the National Landscape Conservation 

System. In September 2011, the National Landscape Conservation System released its 15 year 

strategy to help all levels of the Bureau of Land Management guide the direction of 

management for all National Landscape Conservation System units in cooperation with the rest 

of the Bureau of Land Management. The new NLCS strategy supports the BLM‘s multiple-use 

mission by ensuring that NLCS management efforts will focus on conservation, while still 

allowing for other compatible uses, consistent with the designating legislation or Presidential 

proclamation of the area concerned. In addition to conservation, the strategy emphasizes 

continued collaboration, public involvement, and youth engagement. For more information on 

the National Landscape Conservation System Strategy, visit the BLM website 

at: http://www.blm.gov/wo/st/en/info/newsroom/2011/september/NR_09_30_2011.html

The Wilderness Management program ensures the conservation, protection, and restoration of 

NLCS values in managing 221 Wilderness Areas (totaling over 8.7 million acres) and 545 

Wilderness Study Areas (totaling 13 million acres) as defined below:

Wilderness Areas are undeveloped Federal lands designated by Congress to be 

managed to protect their wilderness characteristics as defined by the Wilderness Act of 

1964. These designated areas are generally large natural and undeveloped landscapes

that offer outstanding opportunities for solitude or primitive and unconfined types of 

recreation.

Wilderness Study Areas (WSAs) are roadless areas that contain wilderness 

characteristics and are protected to maintain those characteristics until Congress 

designates them as Wilderness Areas or releases them for non-wilderness uses. 

The Wilderness Management program focuses on the protection and conservation of wilderness 

and NLCS values with the following activities:
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 96

Monitoring and protecting wilderness character; 

Managing use and encouraging appropriate wilderness uses; 

Monitoring and managing for noxious weed infestations, trespass activities, and 

recreation; and

Restoring impacted areas such as trampled vegetation and eroded soil caused by 

unauthorized off-highway vehicles travelling cross-country. 

The Wilderness Management program frequently addresses challenges associated with 

unauthorized uses, such as illegal off-highway vehicle use, which are resulting in the 

degradation of wilderness character. Managing the wilderness resource requires collaboratively 

managing these NLCS resources as part of the larger landscape. After a Wilderness Area is 

designated, the BLM typically spends the first three years marking and mapping the boundary, 

and providing visitor services such as maps and other 

public information. Subsequent management includes 

acquiring in-holdings from willing sellers, restoring 

wilderness character where needed, engaging in land 

use planning and monitoring, implementing wilderness 

management plans, and continuing to provide visitor 

services. Wilderness management plans are written for 

Wilderness Areas to guide long term management and 

protection of wilderness characteristics and involve an 

interdisciplinary effort associated with land use 

planning. In addition, these plans will raise public 

awareness and understanding of the NLCS, cultivate 

relationships, promote community stewardship of BLMmanaged public land, and provide for use and 

enjoyment of present and future generations.

Scientific research continues to increase as new opportunities are identified; including research 

directed at the effects of landscape stressors on species habitat and migration corridors. New, 

improved, higher-resolution satellite imagery and aerial photography aid in the monitoring of 

Wilderness Areas and WSAs. This imagery is less expensive than complete reliance on ground 

patrols, maximizing the effectiveness of appropriated funds to manage these areas. BLM will 

enhance the role of science partnerships in wilderness management.

Partnerships

Developing partnerships in wilderness stewardship is an important aspect of BLM‘s 

management of Wilderness Areas and WSAs. Nearly 100 formal and informal partnerships 

have been developed to facilitate wilderness stewardship activities on BLM. Typical examples of 

work performed by partners in Wilderness Areas and WSAs include trail construction and 

maintenance, invasive species eradication and monitoring, interim management monitoring of 

WSAs, and reclamation and restoration activities to create more natural environments. The BLM 

is developing a Memorandum of Understanding with the National Wilderness Stewardship 

Alliance, a new national organization that is coordinating the establishment of partners and 

friends groups to assist in wilderness stewardship in the National Wilderness Preservation 

System (NWPS). The NWPS includes all wilderness areas managed by the Forest Service, 

BLM, National Park Service and U.S. Fish and Wildlife Service. It does not include BLM‘s 

Wilderness Study Areas. 

Other Funding Sources

The Wilderness Management program benefits greatly from volunteers who provide thousands 

Hikers enjoy a trail through the saguaro 

cactus in the 9,900 acre Hells Canyon 

Wilderness near Phoenix, Arizona.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 97

of hours of monitoring, as well as material and transportation for specific projects. The program 

also benefits from several crosscutting BLM programs. For example, programs that manage fire,

weeds, and rangeland resources routinely fund projects that also benefit wilderness resources.

By establishing connections across boundaries with other jurisdictions, management of

wilderness areas complements conservation areas within the respective jurisdictions of the 

National Park Service, the Fish and Wildlife Service Refuge System, the U.S. Forest Service, 

state and local governments, private conservation lands, and other BLM land managed for 

resource protection through land-use plan designations.

2013 PROGRAM PERFORMANCE

Monitoring of key indicators to determine trends in wilderness resource condition continues to 

be a priority. In 2013, BLM plans to monitor 8.73 million acres of wilderness. In addition, BLM 

will continue to monitor 12.8 million acres in wilderness study areas to be sure wilderness 

characteristics are being maintained. In 2008, the BLM, the Fish and Wildlife Service, the 

National Park Service, the Forest Service and the U.S. Geological Survey developed and 

published ―Keeping It Wild: An Interagency Strategy To Monitor Trends In Wilderness Character 

Across The National Wilderness Preservation System,‖ (USDA, General Technical 

Report RMRS-GTR-212). The strategy outlines a unified approach to identifying trends in 

wilderness character quality for each wilderness. The Strategy provides a method to assess 

broad scale performance in preserving wilderness character in a manner that will be utilized 

across all wilderness managing agencies.

In 2009, the BLM began a five year process to implement this strategy and complete baseline 

monitoring for 20 percent of the BLM‘s wilderness each year to complete the task for all areas 

by the end of calendar year 2014. The protocol developed to monitor and describe trends in the 

quality of wilderness character using a standardized methodology and format will enable BLM to 

establish a meaningful measure with verified base line data for use into the future.

Plans are written for Wilderness Areas to guide long-term management and protection of 

wilderness characteristics and involve interdisciplinary effort associated with land use planning. 

In 2013, the BLM plans to prepare five Wilderness Management Plans in comparison to twelve 

Wilderness Management Plans (covering 21 of the 37 wilderness designated by the Omnibus 

Public Lands Management Act) scheduled for completion in 2012. As more of the wilderness 

designated by the Omnibus Public Lands Management Act is covered by wilderness 

management plans, work will shift to other management activities such as monitoring and 

protection. In addition, updating existing wilderness characteristic inventories will be an 

increasing workload in 2013.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 98

Performance Overview

WILDERNESS MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife refuges, 

and BLM lands. 

Inventory for Wilderness Character 

(Acres) 730,837 1,517,920 3,194,563 2,535,829 5,415,646 3,540,642 3,540,642 0 3,540,642

Plan for Interdisciplinary Activities 

(Number) 3 0 0 1 1 12 5 -7 5

Monitor Wilderness and Wilderness 

Study Areas (Acres) 19,576,051 19,163,766 18,879,033 17,365,645 16,660,657 17,997,584 17,997,584 0 17,997,584
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 99

Activity: Recreation Management

Subactivity: Recreation Resources Management

2011 

Actual

2012 

Enacted

2013

Change from 

2012 Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Recreation Mgt. ($000) 49,153 49,074 +448 +2,200 51,722 +2,648

FTE (Recreation) 392 392 0 +2 394 +2

Other Major Resources:

POF: Recreation Fee (1232) 17,398 17,500 0 0 18,000 +500

SCDF: Rec Cost Recovery 

(5105) 809 1,500 0 0 1,500 0

Trust Fund: CA Off-Highway 

(7123) 4,746 3,676 0 0 3,676 0

Major Program IT 

Investments:

Recreation Management 

Information System (RMIS) 268 260 0 0 260 0

Summary of 2013 Program Changes for Recreation Management 

Request Component ($000) FTE

Program Changes:

• NLCS-Wild and Scenic Rivers - America's Great Outdoors +400 0

• NLCS-Nat'l Scenic and Historical Trails - America's Great Outdoors +700 0

• Off-Highway Vehicle Management - America's Great Outdoors +1,100 +2

TOTAL, Program Changes +2,200 +2

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Recreation Resources Management program is $51,722,000 

and 394 FTE, a program change of +$2,200,000 and +2 FTE from the 2012 enacted level.

Additional America’s Great Outdoors Activities 

NLCS – Wild & Scenic Rivers ($400K) – In 2013, the requested funding will target recent BLM 

efforts to improve management for Congressionally-designated Wild and Scenic Rivers (WSR)

as well as rivers found to be eligible and/or suitable for consideration as WSRs. The increased 

funding will be used to support additional monitoring, completing baseline inventories, and 

completing suitability analyses on eligible river segments. A portion of the increase will also 

assist those offices completing comprehensive river management plans.

NLCS - National Scenic & Historic Trails ($700K) – The requested funding will be used to 

support additional trail inventory, trail monitoring, cooperative agreements with trail partners, 

staff and volunteer training, and methods to avoid adverse impacts to National Trails.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 100

Off-Highway Vehicle Management and Resource Protection ($1.1 million, 2 FTE) – In 2013, 

the requested funds would allow for an additional 4,000 miles of route inventory, the initiation of 

two new travel management plans, accelerated completion of two on-going travel management 

plans, and implementing two completed travel management plans. These efforts will focus on 

areas that have high demand for public services, ensure public health and safety, reduce user 

conflicts primarily in urban interface areas, and protect natural resources including sage grouse 

habitat, cultural resource sites, and NLCS units. 

PROGRAM OVERVIEW

Program Components

Public lands managed by the BLM provide some of the most diverse range of outdoor recreation opportunities in the 

Western United States of any Federal lands. 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:

Trails and Public Access – Managing trails and public access routes, including 

establishing designations and restrictions for off-highway vehicles, travel networks, and 

planning transportation systems, as well as designating areas and routes for other 

transportation uses. Off-highway vehicle (OHV) use on public lands continues to 

increase. In response, 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. 

Recreation Planning – Preparing and implementing Recreation Area Management 

Plans for designated special recreation management areas and evaluating, assessing, 

and managing a wide range of social, economic and recreational uses of public lands.

Facility Management – 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. 

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.

Youth – Overseeing components of BLM‘s Youth in the America‘s Great Outdoors 

initiative, a significant part of the President's America's Great Outdoors Initiative. The 

recreation program also provides oversight of BLM‘s Take It Outside program to promote 

outdoor activities for kids. The BLM will continue to promote healthy and active lifestyles 

Mountain-biker enjoying the 

Arizona National Scenic Trail.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 101

and better engage the next generation as public land stewards for natural resource 

conservation.

Accessibility – Ensuring facilities and programs meet accessibility standards for 

persons with disabilities.

Visual Resources – Analyzing, managing and ensuring protection of visual resources to 

maintain valued landscape aesthetic character.

Recreation Permits – 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.

Recreation Fees - Providing oversight and accountability for the recreation, commercial 

and concession fee programs.

Public Outreach and Stewardship – Promoting and supporting partnerships, 

volunteerism and stewardship to enhance recreational and educational experiences for 

visitors and public land users.

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.

Travel & Transportation Planning – Addressing travel and transportation planning as 

well as OHV management and restoration needs through Travel Management Plans and 

the Resource Management Planning process. 

Visitor Safety – Providing for safe visits from the public.

Sage-grouse Initiative: As the wide open spaces of the West become more 

populated, people increasingly seek access to public lands for all types of 

authorizations and uses. Wildlife species, such as the greater sage-grouse, 

depend on these undeveloped spaces, too. The BLM tries to balance these 

issues when deciding what lands can accommodate which combination of uses 

while also protecting habitat for a wide range of wildlife species.

Other Funding Sources

The Recreation Resources Management subactivity has been highly successful in sustaining 

partnerships and leveraging appropriated resources. Other funding sources include:

Leveraging Funding Through Partnerships – The recreation program accounts for a 

majority of the Bureau‘s partnerships with non-Federal organizations, leveraging a 

significant amount of monetary resources to accomplish shared goals. Partnerships for 

visitor facilities and services function as a tool to meet community growth demands 

placed on public lands with limited resources. The program will continue to build on its

history of innovation, creativity, and partnership success. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 102

Community Assistance in Managing Visitor Service – The BLM engages corporate, 

business and local support from surrounding communities to collaboratively manage 

recreation resources and jointly deliver visitor services or manage facilities.

Visitor Fees and Concessions – All recreation fees collected at specific recreation 

sites provide additional direct support for visitor services at those sites, such as law 

enforcement, information, habitat or cultural resources restoration, deferred maintenance 

and other recreation site and visitor services operations costs. The BLM has been 

working to charge reasonable and publically supported user fees and has a unique 

policy of returning 100% of fees collected directly to the site where they were collected. 

In 2011, recreation fee collections were $17.4 million. The BLM anticipates collecting 

$17.5 million in 2012 and $18.0 million in 2013 under its recreation fee collection 

authorities. The use of recreation fee collections is also described in the Permanent 

Operating Funds section. 

Volunteers and Public Service – The recreation program has been particularly 

successful in engaging volunteers, accounting for nearly half of the entire Bureau‘s 

volunteer hours and doubling the seasonal recreation workforce to serve visitors, 

maintain facilities and restore resources.

2013 PROGRAM PERFORMANCE

In 2013, the BLM will continue to support the President‘s America‘s Great Outdoors by 

promoting community-based recreation and advancing job and volunteer opportunities. The 

Recreation Program will improve outdoor recreation opportunities, protect special areas, and 

maintain the quality of public land resources in FY 2013 through the following:

Support Renewable Energy by Protecting Aesthetic Quality of the Landscape and 

Improving Energy Efficiency – Assist in the analysis of renewable energy projects, 

enhance project conservation design, improve quality and energy efficiency of recreation 

sites through expanded Visual Resource Management (VRM) and Quality Built 

Environment guidance and program support. The VRM program plays a significant role 

in the analysis of the visual and aesthetic impacts, mitigation and sighting requirements 

of renewable energy (solar and wind) developments and other proposed landscape 

altering use activities. 

Maintain and Expand Youth, Education and Stewardship Programs – Encourage 

partnerships in the implementation of BLM‘s Youth and Careers in Nature initiative, a 

part of the Secretary‘s Youth in Natural Resources Initiative, and continue to emphasize 

and promote stewardship and responsible use programs. In addition, the program will 

work with partners to improve delivery of real time information through the internet and 

provide stewardship ethics information to visitors of the public lands.

Enhancing Recreation Permit Management and Fee Program Implementation –

Enhance oversight, cost recovery and monitoring of recreation permits. Encourage fair 

application and optimize the collection of recreation fees for visitor facilities and services. 

Recreation revenues will continue to be returned to recreation sites to directly benefit 

Over 4,000 communities (23 million people) live within 30 miles of public lands, and 40 

percent of the public lands are within a day‘s drive of 16 major urban areas with a population 

of more than 40 million. Visitation to public lands has increased from 51 million visitors in 

2001 to approximately 58 million in 2011.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 103

users, improve facilities and services and enhance recreation opportunities. The BLM 

processes hundreds of thousands of commercial and competitive special recreation 

permits each year. Recreational related businesses and western communities rely on 

the continued availability of public land recreation opportunities, venues for major special 

events and BLM managed recreational facilities and settings.

Expanding Use of Concessions and Enhancing the Value of Partnerships –

Continue to support partnerships with recreation groups, non-profit organizations, 

businesses and local communities to enhance BLM‘s ability to leverage resources, 

expand visitor service business opportunities and recreation services, and cooperatively 

manage resources at the National, State and Field levels. 

Improve Regional and Landscape Level Cooperative Recreation Management –

Implement new policies, expand partnerships, and emphasize training that accelerates 

BLM's transition to a business-oriented, ecosystem services-based, and collaborativelydelivered management framework.

Ensuring Public Health, Safety and Accessibility – Provide for the daily and routine 

operations and maintenance of over 3,500 facilities including campgrounds, picnic 

areas, major interpretive center facilities and thousands of miles of trails. The BLM

strives to ensure that facilities are in good condition, accessible and safe.

Conducting Customer/Visitor Service Satisfaction Surveys – This annual survey 

measures performance success in providing quality visitor services. BLM continues to 

sustain scores of above the 90 percent range in customer satisfaction in providing 

recreation program visitor services and facilities to its customers.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 104

Performance Overview

RECREATION RESOURCES MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

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.

Strategic Plan Measures

Percent of visitors satisfied 

with the quality of their 

experience. (SP)

92% 

92/ 100

94% 

94/ 100

94% 

94/ 100

92% 

92/ 100

95% 

95/ 100

92% 

92/100

92% 

92/100 0%

92% 

92/100

Comment: Customer surveys have a variance of +/- 6%. 

Percent satisfaction among 

visitors served by facilitated 

programs. (SP) 

94% 

94/ 100

96% 

96/ 100

98% 

98 / 100

94% 

94/ 100

90% 

90/ 100

94% 

94/100

94% 

94/100 0%

94% 

94/ 100

Comment: The data for this measure is compiled using the BLM Visitor Survey report prepared by the University of Idaho. Customer surveys have a variance of +/-

6%. 

Supporting Bureau Measures

Percent of customers 

satisfied with the value for 

fee paid. (BUR)

80% 82% 79% 81% 88% 70% 70% 0% 70%

Percent of recreation fee 

program receipts spent on 

fee collection. (BUR)

3% 3% 3% 3% 3% 3% 3% 0% 3%

Percent of public lands 

where Visual Resource 

Management data have 

been recorded in digital 

format for both inventory 

and management classes. 

(BUR)

26%

66,563,497/

256M

39%

99,624,251/

256M

49% 

124,744,373/ 

256M

58% 

143,363,497/ 

248M

75% 

187,144,373/ 

248M

78%

192,758,704

248M

80%

198,541,465

248M

+2%

80%

198,541,465

248M

Comments: The denominator change in 2011 from 253M to 248M is the result of land conveyance, exchange and disposal. The details of these lands actions are 

listed in the Public Land Statistics. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 105

RECREATION RESOURCES MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

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.

Miles of National Scenic and 

Historic Trail inventory 

completed to standards. 

(BUR) 

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

365 384 404 769 +365 769

Miles of National Scenic and 

Historic Trail monitoring 

completed to standards. 

(BUR) 

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

918 1,320 1,595 1,695 +100 1,695

Percent of designated Wild 

and Scenic River miles 

achieving goals, objectives, 

and desired conditions in 

maintaining, protecting, 

and/or enhancing riverrelated values. (BUR)

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

94 % 

2,512/2,681

100%

2,681 / 

2,681

95%

2,547 / 

2,681

0

95%

2,547 / 2,681
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 106

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 107

Activity: Energy and Minerals Management

2013 Change

Fixed 

Costs & from

2011 2012

Related 

Changes

Program 

Changes Budget

2012 

Enacted

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-)

Oil and Gas Mgmt. $ 70,130 72,466 +523 -26,934 46,055 -26,411

FTE 522 553 +0 -103 450 -103

Oil and Gas APD 

Processing Fund $ 45,500 32,500 +0 +0 32,500 +0

FTE 425 346 +0 +0 346 +0

Offsetting APD Fees $ -31,2281-32,500 +0 +0 -32,500 +0

Inspection Fees $ 0 0 +0 +47,950 47,950 +47,950

FTE 0 0 +0 +208 2082+208

Offsetting Inspection 

Collections $ 0 0 +0 -47,950 -47,950 -47,950

Coal Mgmt. $ 9,724 7,043 +86 +2,400 9,529 +2,486

FTE 78 56 +0 +20 76 +20

Other Mineral 

Resources Mgmt. $ 10,597 8,402 +100 +2,000 10,502 +2,100

FTE 89 71 +0 +17 88 +17

Renewable Energy $ [21,735] 19,703 +121 +7,000 26,824 +7,121

FTE [106] 106 +0 +47 153 +153

Total Activity $ 90,451 107,614 +830 -15,534 92,910 -14,704

FTE 1,114 1,132 +0 +189 1,321 +295

1Oil and gas APD fee collections were estimated at $45.5 million in the 2011 enacted appropriation. Actual collections were only 

$31.2 million in 2011. The shortfall in fee revenue for the Oil and Gas Management subactivity was made up through an automatic 

direct appropriation of $14.3 million, resulting in a higher actual direct appropriation of $84.4 million for 2011 compared to the 

estimated level of $70.1 million in the 2011 Appropriations Act. Therefore, the actual 2011 appropriation for the Energy and Minerals 

Management activity is $104.8 million rather than the estimated 2011 actual appropriation of $90.5 million. The 2012 budget request 

and enacted level for APD collections was $32.5 million, which accounts for the reduced collections.

2

In 2013, the BLM proposes to fund inspection and enforcement activities through a new fee. The proposal includes shifting 162 

FTE and $37,950,000 from Oil and Gas Mgmt requested appropriations, which will be fully offset by the collected fees. The proposal 

also includes collecting an additional $10 million and funding an additional 46 FTE. The proposed inspection fee will total 

$47,950,000 and fund a total of 208 FTE. 

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 2011, onshore Federal lands produced 

43 percent of the Nation‘s coal, 40 percent of the nation‘s geothermal capacity, 13 percent of 

domestic natural gas, and 5 percent of domestically-produced oil. 

The Oil and Gas Management Program goal is to provide access to oil and gas where 

appropriate, and to manage exploration and development activities in an environmentally sound 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 108

way.

Coal is used to generate approximately 50 percent of the Nation‘s electricity. The electric power 

sector (electric utilities and independent power producers) accounts for about 92 percent of all 

coal consumed in the U.S. and is the driving force for the Nation‘s coal consumption. 

The BLM provides other minerals needed to support local infrastructure and economic 

development. Demand is increasing globally for non-energy solid minerals such as potassium, 

phosphate, sodium, and potash. Other important mineral resources produced from public lands 

include uranium, gold, silver, gypsum, sodium, building stone, sand, and gravel. The BLM 

processes sales and issues permits for mineral materials such as sand, gravel, stone, and 

clays, which are essential to maintenance and construction of roads and buildings, including 

those used by BLM to fulfill its land management objectives.

The Renewable Energy Management Program is responsible for processing right-of-way 

applications for wind and solar energy, overseeing geothermal energy leasing and development, 

and prioritizing transmission development associated with renewable energy production.

Geothermal energy development has historically been managed as part of the Oil and Gas 

Management Program. Funding for geothermal leasing and development will be transferred 

from the Oil and Gas Management Program to the Renewable Energy Program in 2013 as 

management oversight of renewable energy development is 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 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 109

Activity: Energy and Minerals Management

Subactivity: Oil and Gas Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Oil & Gas Mgt. ($000) 70,130 72,466 +523 -26,934 46,055 -26,411

FTE 522 553 -103 450 -103

Other Major Resources:

APD Fees +45,500 32,500 0 0 32,500 0

APD Offsetting Collections -31,228 -32,500 0 0 -32,500 0

APD FTE 425 346 0 0 346 0

Inspection Fee 0 0 0 +47,950 47,950 +47,950

Inspection Fee Offsetting Collections 0 0 0 -47,950 -47,950 -47,950

Inspection Fee FTE 0 0 0 +208 208 +208

POF: Energy Act Permit Processing 

Fund (9141) 19,247 19,515 0 -589 18,926 -589

SCDF: Energy and Min. Cost 

Recoveries (5104, 5110, 5330) 3,978 2,900 0 0 2,900 0

Major Program IT Investments:

National Oil & Gas Lease Sale 

System (LSS) 305 0 0 0 0 0

Remote Data Acquisition for Well 

Production (RDAWP) 526 0 0 0 0 0

Automated Fluid Minerals Support 

System (AFMSS) 1,186 1,745 0 0 1,745 0

Summary of 2013 Program Changes for Oil & Gas Management

Request Component ($000) FTE

Program Changes:

• Transfer Geothermal Funds to Renewable Energy Subactivity -2,000 -10

• General Program Increase +8,016 +49

• Leasing Reform +5,000 +20

• Decrease Base Inspections Funding, offset by fees -37,950 -162

TOTAL, Program Changes -26,934 -103

Summary of 2013 Program Changes for Inspection Fee Operations

Request Component ($000) FTE

• Increase Inspection Fees (largely offset by elimination of 

appropriations) +47,950 +208

TOTAL, Program Changes +47,950 +208
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 110

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Oil and Gas Management subactivity is $46,055,000 and 450 

FTE, a program change of -$26,934,000 and -103 FTE from the 2012 enacted level. This net 

funding decrease is primarily a reflection of proposed changes in fee collections as described 

below.

Transfer Geothermal Funds to Renewable Energy Subactivity (-$2,000,000/-10 FTE) – The 

2013 budget proposes shifting geothermal funding from Oil and Gas Management to the 

Renewable Energy Management subactivity.

General Program Increase (+$8,016,000/+49 FTE) –A $5.0 million program increase restores 

the BLM‘s leasing and oversight capacity to the 2011 enacted level, after a 2012 reduction in 

appropriations limited BLM‘s ability to implement the leasing reforms it instituted in May 2010. 

This additional funding in 2013 will allow BLM to more fully achieve the goal of the leasing 

reforms and to effectively oversee energy permitting and development activities. In addition, the 

BLM is requesting an additional $3.0 million for large, regional-scale studies and environmental 

impact statements for conventional energy issues.

Leasing Reform (+$5,000,000/+20 FTE) A $5.0 million programmatic increase is requested to 

enable the BLM to effectively implement its leasing reforms without sacrificing other program 

goals, such as providing industry with timely access to Federal oil and gas resources. The 

increased opportunity for public participation and a more thorough environmental review 

process and documentation required by BLM‘s leasing reforms have increased the BLM‘s costs, 

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

environmental analysis.

Decrease Base Funding for Inspections/Shift Cost to Fees (-$37,950,000/-162 FTE) - The 

2013 budget proposes shifting a significant share of the cost of oil and gas inspections to 

industry fees, for a savings of $37,950,000 in requested funding. 

Legislative Changes

Inspection Fee - The 2013 budget proposes to shift a significant share of the cost of the 

inspections activity to industry fees, for a savings of $37,950,000 in requested appropriations. 

The estimated collections generated from the proposed inspection fees will total $47,950,000, 

fully offsetting the proposed reduction in appropriated funding and providing for a net increase of 

$10.0 million in funds available for this critical BLM management responsibility. The increased 

funding is aimed at correcting deficiencies identified by the Government Accountability Office in 

its February 2011 report, which designated Federal management of oil and gas resources, 

including production and revenue collection as high risk. The $10.0 million increase will help 

BLM achieve the high priority goal of increasing the completion of inspections of Federal and 

Indian high risk oil and gas cases by nine percent over 2011 levels. The BLM will also complete 

more environmental inspections to ensure environmental requirements are being followed in all 

phases of development. The BLM estimates an additional 46 FTE will be supported by this 

increased funding.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 111

Proposed appropriations language to implement the fee is included in the General Provisions for 

the Department of the Interior, and is shown below:

SEC. 114. (a) In fiscal year 2013, the Bureau of Land Management (BLM) shall collect a 

non-refundable inspection fee, which shall be deposited in the "Management of Lands 

and Resources" account, from the designated operator of each Federal and Indian lease 

or agreement subject to inspection by BLM under 30 U.S.C. 1718(b) that is in place at 

the start of fiscal year 2013.

(b) Fees for 2013 shall be.

(1) $700 for each lease or agreement with non-active or inactive wells, but with surface 

use, disturbance or reclamation;

(2) $1,450 for each lease or agreement with one to ten wells, with any combination of 

active or inactive wells;

(3) $3,500 for each lease or agreement with 11 to 50 wells, with any combination of 

active or inactive wells; and

(4) $6,800 for each lease or 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.

Nonproducing Lease Fee - The Administration will submit a legislative proposal to encourage 

energy production on lands and waters leased for development. A $4.00 per acre fee on nonproducing Federal leases on lands and waters would provide a financial incentive for oil and gas 

companies to either get their leases into production or relinquish them so that the tracts can be 

leased to and developed by new parties. The proposed $4.00 per acre fee would apply to all 

new leases onshore and offshore and would be indexed annually. In October 2008, the 

Government Accountability Office issued a report critical of past efforts by Interior to ensure that 

companies diligently develop their Federal leases. Although the report focused on 

administrative actions that the Department could undertake, this proposal requires legislative 

action. This proposal is similar to other non-producing fee proposals considered by the 

Congress in the last several years. The fee is projected to generate revenues to the U.S. 

Treasury of $13.0 million in 2013 and $783.0 million over ten years.

Repeal Geothermal Payments to Counties - The Administration proposes to repeal Section 

224(b) of the Energy Policy Act of 2005. Prior to passage of this legislation, geothermal 

revenues were split between the Federal government and States, with 50 percent directed to 

States, and 50 percent to the Treasury. The Energy Policy Act of 2005 changed this distribution 

beginning in 2006 to direct 50 percent to States, 25 percent to counties, and for a period of five 

years, 25 percent to a new BLM Geothermal Steam Act Implementation Fund. The allocations 

to the new BLM geothermal fund were discontinued a year early through a provision in the 2010 

Interior Appropriations Act. The repeal of Section 224(b) will permanently discontinue payments 

to counties and restore the disposition of Federal geothermal leasing revenues to the historical 

formula of 50 percent to the States and 50 percent to the Treasury. This results in estimated 

savings of $4.0 million in 2013 and $50.0 million over ten years.

Repeal Permit Processing Improvement Fund and Prohibition on Oil and Gas Cost 

Recovery - The Administration proposes to repeal portions of Section 365 of the Energy Policy 

Act, beginning in 2013. Section 365 diverted mineral leasing receipts from the U.S. Treasury to 

a BLM Permit Processing Improvement Fund and also prohibited BLM from establishing cost 

recovery fees for processing applications for oil and gas permits to drill. Congress has 

implemented permit fees through appropriations language for the last several years and the 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 112

2013 budget proposes to continue this practice. Starting in 2013, upon elimination of the fee 

prohibition, BLM will promulgate regulations to establish fees for applications for permits to drill 

administratively. In combination with normal discretionary appropriations, these cost recovery 

fees will then replace the applications for permit to drill fees set annually through appropriations 

language and the mandatory permit fund, which would also be repealed starting in 2014. 

Savings from terminating this mandatory funding are estimated at $18.0 million in 2014 and 

$36.0 million over two years. 

Administrative Changes

Onshore Oil and Gas Royalty Revenues Changes - The Administration believes that 

American taxpayers should get a fair return on the development of energy resources on their 

public lands. A 2008 Government Accountability Office report suggests that taxpayers could be 

getting a better return from Federal oil and gas resources, at least in some areas. The BLM is 

evaluating options for changes to the royalty rate and expects to publish a draft regulation in the 

near future.

PROGRAM OVERVIEW

Program Components

The BLM Oil and Gas Management Program is responsible for providing access to energy 

resources in an environmentally responsible manner. The primary program components are:

Conducting oil and gas lease sales.

Administering existing oil and gas leases.

Processing oil and gas Applications for Permit to Drill (APDs) and subsequent modifications.

Inspecting existing oil and gas authorizations.

Inspecting producing oil and gas wells and ensuring proper reporting of production.

Taking enforcement actions to ensure compliance with terms and conditions of leases, 

APDs, and other authorizations. This includes compliance with environmental conditions.

Approving reservoir management agreements to provide for orderly development of oil and 

gas fields.

Evaluating oil and gas fields for drainage (fluid minerals on BLM land removed through a 

well on adjacent private land), and taking administrative actions, if necessary, to protect 

federal mineral interests.

Protecting the environment by plugging and reclaiming orphan oil and gas wells drilled by 

previously existing oil and gas companies and Alaska Legacy Wells originally drilled by the 

Federal Government (United States Navy and United States Geological Survey).

Carrying out trust responsibilities by managing operational activities on approximately 3,700 

oil and gas leases for Indian Tribes and individual Indian allottees.

Providing advice on leasing and operational matters to the Bureau of Indian Affairs, Indian 

Tribes, and Indian mineral owners.

High Risk Program Designation

In a February 2011 report, the Government Accountability Office (GAO) designated federal 

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

because the Department of the Interior (1) does not have reasonable assurance that it is 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 113

collecting its share of revenue from oil and gas produced on federal lands; (2) continues to 

experience problems in hiring, training, and retaining sufficient staff to provide oversight and 

management of oil and gas operations on lands and waters; and (3) is currently engaged in a 

broad reorganization of both its offshore oil and gas management and revenue collection 

functions. 

The BLM has been working to improve its processes in these areas and has taken steps to 

address the problems identified by the GAO. Some of the areas being worked on are:

Royalty Reform – The BLM is in the process of developing a rulemaking to adjust royalty 

rates to achieve a better return to taxpayers.

Fair Return Study – The BLM and Bureau of Ocean Energy Management (BOEM) 

funded a study for a comparative assessment of royalty rates of various states and other 

nations, to assist the agencies in evaluating royalty policies. 

Inspection and Enforcement Strategy Updated – The BLM is transitioning to a risk-based 

inspection strategy. This type of strategy will help ensure the highest risk cases are 

inspected each year.

Law Enforcement – The BLM Office of Law Enforcement and Security, in cooperation 

with BLM technical staff, actively investigates incidents involving theft, fraud, or 

misreporting of oil and gas resources and takes administrative, civil, and/or criminal 

action as appropriate.

Inspection and Enforcement Internal Control Review - The BLM performed an internal 

control review of the inspection and enforcement program. Results from this are being 

used to correct and improve the inspection and enforcement program.

Training – The BLM is evaluating, updating and developing training courses to assist in

the evaluation of applications, inspection of operations, and production accountability 

reviews. 

Recruitment - The BLM is constantly 

evaluating opportunities to retain personnel in 

critical skill areas through various means, 

including a recent revision of the position 

descriptions for PATs with the goal of creating a 

clear upward mobility path

BLM’s Onshore Leasing Reforms

Onshore fossil fuels will continue to make an 

important contribution in fulfilling our Nation's 

energy needs, but development of these 

resources needs to be conducted responsibly. 

The Department recognized that improvements 

were needed in the oil and gas leasing process. 

In May 2010, BLM finalized several reforms to its oil and gas program to improve environmental 

protection of important natural resources on public lands while aiding in the orderly leasing and 

balanced development of these resources. The reforms establish a more orderly, open, 

consistent, and environmentally sound process for developing oil and gas resources on public 

lands. These reforms will help reduce potential conflicts that can lead to costly and timeconsuming protests and litigation of leases. Under the reformed leasing policy, the BLM will: 

Engage the public in the development of Master Leasing Plans (MLP) prior to leasing in 

certain areas where significant new oil and gas development is anticipated. The intent is 

Oil and Gas Leasing Reforms

Recently implemented Leasing Reforms 

improved protections for land, water, and 

wildlife, and reduced potential conflicts that

can lead to costly and time-consuming 

protests and litigation of leases. Protests 

have declined significantly and the protests 

that are received are now being resolved 

more quickly. In 2009, the BLM had 1,475 

parcels protested, with approximately $77.6 

million dollars in suspense. In FY 2011, 

BLM has significantly decreased the 

number of parcels protested to 516, with 

only $4.8 million dollars in suspense.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 114

to fully consider other important natural resource values before making a decision on 

leasing and development in an area.

Ensure potential lease sales are fully coordinated both internally and externally, 

including public participation, and interdisciplinary review of available information, as well 

as on-site visits to parcels prior to leasing when necessary to supplement or validate 

existing data.

Require an ―extraordinary circumstances‖ 

review screen before applying the 

categorical exclusions in the Energy Policy 

Act of 2005 to oil and gas drilling activities 

on BLM lands. Categorical exclusions are 

categories of actions that do not have a 

significant effect on the quality of the 

human environment, and for which the 

BLM is generally not required to prepare 

extensive environmental reviews. A review 

for extraordinary circumstances has been 

required for all administrativelyestablished categorical exclusions, and 

will now apply to oil and gas categorical 

exclusions established by the Energy Policy Act of 2005, as well. 

The increased opportunity for public participation and a more thorough environmental review 

process and documentation will help reduce the number of protests filed, as well as enhance 

the BLM‘s ability to resolve protests prior to lease sales.

Inspection and Enforcement

The BLM performs several different types of oil and gas inspections each year in an effort to 

ensure that the American people receive the benefit of the resources on their lands and to 

ensure that those resources are utilized in an environmentally responsible manner.

Production Inspections -

The BLM conducts inspections on production facilities to ensure that equipment, practices, and 

procedures are in accordance with the regulations, orders and any applicable approval 

documents. Historically, BLM has conducted two categories of production inspections: high 

production case inspections under FOGRMA and other production inspections.

FOGRMA/High Production Case Inspections. The Federal Oil and Gas Royalty 

Management Act (FOGRMA) requires the BLM to perform at least one inspection 

annually at each lease site producing or expected to produce significant quantities of oil 

or gas in any year.

Other Production Inspections. The BLM also strives to annually perform inspections on 

approximately one-third of all other producing (lower than high production) leases and 

agreements on a rotating basis, so that all leases are inspected every three years.

Although the BLM is required to conduct production inspections on all high-production leases 

and agreements, if no violations have occurred for several years on a high-production lease or 

agreement then, historically, only a records verification inspection was carried out. BLM 

conducted 649 of the 889 planned onsite, high-priority production inspections in 2010.

Sage-grouse Initiative: If 

parcels that industry has 

proposed for oil and gas 

leasing are offered for sale in 

sage-grouse priority habitat, 

BLM field managers may 

attach a lease notice to new leases alerting 

the lessee that additional conditions will be 

applied to approvals to develop to the lease, 

including Applications for Permit to Drill 

(APDs), sundry notices and associated rightsof-way, if future sage-grouse conservation 

efforts are appropriate.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 115

The BLM did not meet its policy goal of inspecting one-third of the other-producing leases and 

agreements in 2011, completing only 4,938 of the 6,537 required inspections. This was 

primarily due to the difficulty of retaining certified inspectors in remote field offices. The BLM will 

continue to search for ways to retain these inspectors. The BLM also will continue to use 

qualified natural resource specialists to assist in environmental inspections to allow the certified 

petroleum engineering technicians to concentrate on production verification inspections.

The BLM has historically ranked leases to ensure that they were inspected in an order that 

reflected their relative production levels (i.e., high-production leases were inspected first). To 

improve upon this system, in 2011, the BLM initiated a risk-based strategy for prioritizing 

production inspections. The BLM plans to expand this risk-based strategy to the other types of 

inspections as soon as risk factors that have been identified can be tracked in the Automated 

Fluid Minerals Support System (AFMSS), the inspection and enforcement database. The riskbased strategy will help the BLM maximize the use of a limited inspection staff to better meet 

the inspection goals and requirements in the future. The BLM will continue to train new 

inspectors so that the BLM will be able to meet its minimum inspection requirements going 

forward and more effectively target inspection resources to meet other inspection goals 

established by BLM policy.

Drilling Inspections

The BLM conducts inspections on wells as they are being drilled. The operations are inspected 

to ensure that equipment, practices, and procedures are in accordance with the approval 

documents. 

Abandonment Inspections

The BLM conducts abandonment inspections during the plugging of oil and gas wells. These 

could be depleted producing wells or newly drilled dry holes.

Workover Inspections

The BLM inspects workover operations on existing producing, depleted producer and service 

wells. The operations are inspected to ensure that equipment, practices, and procedures are in 

accordance with the approval documents.

Environmental Inspections

Natural Resource Specialists, Environmental Scientists, or other resource program specialists 

(wildlife biologists, archaeologists, etc.) typically perform BLM environmental inspections. 

Environmental inspections include inspection of reclamation efforts, erosion control measures, 

topsoil stockpiling, well location, access road, and pit construction and use, spills, water 

disposal methods, tank battery dikes and surface hazards. Environmental inspections also 

include inspections to ensure abandoned locations are properly reclaimed and post approval 

inspections that look specifically at surface environmental impacts. They do not include onsite 

inspections prior to the APD being approved.

Records Verification Inspections

The BLM uses records verification inspections to review production records and compare them 

to production reports sent to the Office of Natural Resources Revenue. These inspections may 

not require onsite visits.

Undesirable Event Inspections

The BLM conducts undesirable event inspections when spills or accidents occur on an oil and 

gas lease. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 116

Alleged Theft Inspections

When an alleged theft of production is reported to a BLM Field Office by the operator or the 

public, the BLM conducts an alleged theft inspection.

Table 1 below shows a breakout of inspections completed in 2008-2011, planned for 2012, and 

estimated for 2013.

Table 1: Inspections Completed and Estimated

FY 2008

Completed

FY 2009

Completed

FY 2010

Completed

FY 2011 

Required

FY 20112

Completed

FY 20122

Estimated

FY 20132

Estimated

Production Inspections

1. FOGRMA High Priority1377 648 649 N/A N/A N/A N/A

2. High-Risk Cases2 N/A N/A N/A 3,526 2,606 2,997 3,350

3. Other Production 5,009 6,371 6,486 6,537 4,938 4,968 5,000

Total Production 

Inspections 5,386 7,019 7,135 10,063 7,544 7,965 8,350

Other Inspections

1. Drilling Inspections 2,681 1,587 1,884 2,074 1,963 1,941 1,900

2. Abandonment 

Inspections 967 878 1,168 1,198 1,100 1,243 1,200

3. Workover Inspections 218 346 400 0 345 248 250

4. Environmental 

Inspections 14,684 16,498 17,978 17,236 19,371 19,893 20,000

5. Record Verification 

Inspections 1,615 2,907 2,613 0 2,430 2,432 2,500

6. Undesirable Event 

Inspections3 316 363 393 0 476 293 290

7. Alleged Theft 

Inspections3 3 2 2 0 4 0 0

Total Other Inspections 20,484 22,581 24,438 20,508 25,689 26,050 26,140

Total Inspections4

25,870 29,600 31,573 30,571 33,233 34,015 34,490

1BLM required inspections in 2009 and 2010 are those inspections required by either regulation or policy. FOGRMA provides guidance 

for inspections.

2

In 2011, the BLM instituted a risk-based strategy for production inspections. This category consists of wells and leases that meet BLM’s 

high-risk criteria. Based on this strategy, each year’s list of required high-risk cases is determined on the previous year’s history. For 

this reason, the actual quantity of required high-risk inspections cannot be determined until the previous year is complete. For budgeting 

purposes, the above table assumes the same balance of criteria and cases as was present in FY 2011 holds constant through FY 2013. 

The FY 2012 and FY 2013 Estimated numbers are based on assuming the BLM completes 85% of required high-risk inspections in FY 

2012 and 95% in FY 2013, compared to a 74% completion rate in FY 2011. (NOTE: The actual FY 2012 Inspection Strategy, detailing 

the required inspections, is not complete as of the publication of this justification.)

3

These inspections are conducted on an as-needed basis.

4

This table combines inspections on cases and inspections on individual wells.

Critical Factors

The primary critical factors impacting the program are:
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 117

BLM must review and analyze environmental documents which include increasingly 

complex environmental issues, impacts, and mitigation plans for lease sales, APDs, and 

subsequent production operations.

As production activity increases, the BLM must increase the number of oil and gas 

inspections and increase efforts to ensure appropriate accountability of production 

volumes.

BLM is experiencing problems with employee retention due to retirements and higher 

salaries offered by private industry.

New High Priority Goal for Onshore Oil and Gas Operations

The 2013 budget includes a new priority goal targeting onshore oil and gas operations to ensure 

that taxpayers are receiving revenues owed for production and that operations are safe and 

environmentally responsible. Although the priority goal focuses on onshore inspection and 

monitoring program, milestones and deliverables will be used to gauge the reduction of risks in 

other areas of production and revenue collection. The new priority goal for 2013 is to improve 

production accountability, safety and environmental protection of oil and gas operations through 

increased inspect of high-risk oil and gas production cases. The BLM will support the 

accomplishment of the high priority goal by increasing the completion of inspections of Federal 

and Indian high risk oil and gas cases by nine percent over 2011 levels, the equivalent of 

covering as much as 95 percent of the potential high risk cases.

Performance Measures

The BLM has consistently tracked the number of inspections completed to ensure that oil and 

gas production on public land is carried out in an environmentally sound manner while 

generating a fair return of revenue for the American people. Over the past four years, the BLM 

has performed, on average, 98 percent of all required inspections.

The BLM is utilizing a Strategic Plan measure that tracks the percent of leases where 

production verification has occurred. The new measure will compare the total number of cases 

against the number of production and records verification inspections completed on those cases 

annually. Prior to the establishment of this measure, the BLM tracked the number of inspections 

completed on both wells and cases using the total number of required inspections as a baseline. 

The older measure was ineffective in two ways. First, a single case may have multiple wells 

and therefore the denominator may have been under-inclusive in that it combined what should 

have been multiple units into a single unit and, conversely, the measure may have also been 

over-inclusive in that it included multiple wells when only a single "case" inspection was carried 

out. Second, the numerator included all inspections, while the denominator only included 

required inspections, this resulted in multiple years in which more than 100 percent of the 

performance was completed since required inspections is a subset of total inspections. 

The numbers of inspections, inspectors, and total annual costs have risen over the previous 

years. The number of inspections has increased and the average cost per inspection has stayed 

about the same at $1,700. A single case may have multiple inspections performed upon it and 

therefore the costs of inspections per case are, on average, approximately $3,849.

Processing of Applications for Permit to Drill

Between 1996 and 2006, the number of new APDs received rose dramatically. The BLM 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 118

expanded its capability to process APDs to handle the increasing demand. The number of APDs 

received dropped in 2007 and 2008, but still remained relatively high. The number dropped 

further in 2009, 2010 and 2011, but the complexity of processing these declining numbers of 

APDs has grown, as has the unit cost for processing them. The BLM projects that it will receive 

5,000 APDs in 2012 and 5,000 APDs in 2013. Approval times have increased or remained high 

due to the increased complexity of resource issues analyzed in environmental documents. 

As shown on the Table 2 below, the number of APDs awaiting approval is projected to continue 

to decline in 2012 and 2013.

Table 2: APDs: Pending, Received, Approved, and Processed

2008 

Actual 

2009 

Actual 

2010 

Actual 

2011 

Actual 

2012 

Planned 

2013 

Estimated

Total APDs pending at 

start of year 5,381 5,419 5,370 4580 4108 3634

New APDs received 7,884 5,257 4,251 4,728 5026 5500

APDs approved1

6,908 4,571 4,593 4,725 TBD TBD

Total APDs processed 7,846 5,306 5,237 5,200 5,500 5,500

APDs pending at year 

end 5,419 5,370 4580 4108 3634 3634

Table 3 below illustrates the relationship between the prices for oil and gas and leasing and 

permitting activity. Leasing and permitting activities increase as the commodity prices increase.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 119

Table 3: New Leases Issued, Drilling Permits Approved

2013 PROGRAM PERFORMANCE

The percentage of leases with approved APDs is expected to increase slightly due to an overall 

decrease in the number of active leases. As the price of oil and gas decreases, operators tend 

to focus more of their drilling activities adjacent to existing production (since these are lower risk 

wells) and allow more undeveloped leases to expire. The percentage of APDs processed is 

expected to be 60 percent, an increase from the 2010 level resulting from a decrease in the 

number of pending APDs. The percentage of required inspections completed is expected to 

remain the same as in 2011 and the percentage of producing fluid mineral cases that have a 

completed inspection during the year, the new Strategic Plan measure discussed above, is 

expected to be 44 percent.

$0

$20

$40

$60

$80

$100

$120

0

2,000

4,000

6,000

8,000

10,000

12,000

Leases Issued Each Year APDs Approved

APDs Received Oil - ($s Per Barrel)

New Leases Issued 

New Drilling Permits 

Approved

EIA Data Souce For Oil and gas Spot Prices
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 120

Performance Overview

OIL AND GAS MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 1: Secure America's Energy Resources

Strategy 1: Ensure environmental compliance and the safety of energy development.

Strategic Plan Measures

Percent of oil and gas acres 

reclaimed to appropriate final land 

condition. (SP) 

25% 

2,580/ 

10,258

25%

1,678/

6,751

25% 

1,713 / 

6,801

25%

2,525/

10,062

23% 

2,327/ 

10,062

25%

1,600/

6,412

25%

1,600/

6,412

0%

25%

2,482/

9,905

Percent of producing fluid mineral 

cases that have a completed 

inspection during the year. (SP)

New

In 2011

New

In 2011

New

In 2011

New

In 2011

36% 

9,869/ 

27,419

44%

12,116/

27,719

44%

12,116/

27,719

0%

44%

12,116/

27,719

Comment: 

Supporting Bureau Measure

Percent of Federal oil and gas 

lease assignments processed. 

(BUR)

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

90%

27,548/

30,611

90%

27,548/

30,611

90%

27,548/

30,611

0%

90%

27,548/

30,611

Strategy 3: Manage conventional energy development

Strategic Plan Measure

Percent of pending fluid mineral 

Applications for Permit to Drill 

(APDs) which are processed. (SP)

59%

7,846/

13,265

50%

5,306/

10,676

54%

5,237/

9,621

64%

7,250/

11,384

56% 

5,200/ 

9,308

60%

5,500/

9,134

60% 

5,500/ 

9,134

0%

65% 

5,950/ 

9,134

Comment: This is a new Strategic Plan Measure; however, the historical data for this measure is available and is shown above.

Supporting Bureau Measure

Percent of oil and gas Reservoir 

Management Agreements 

processed. (BUR)

91%

3,071/ 

3,358

100%

4,975/ 

4,960

122%

4,086/3,358

90% 

2,944/3,265

90% 

2,944/3,265

91%

3,050/ 

3,350

91%

3,050/ 

3,350

0%

91%

3,050/ 

3,350
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 121

Activity: Energy and Minerals Management

Subactivity: Coal Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Coal ($000) 9,724 7,043 +86 +2,400 9,529 +2,486

FTE 78 56 +20 76 +20

Summary of 2013 Program Changes for Coal Management

Request Component ($000) FTE

Program Changes:

• Inspections and Enforcement +2,400 +20

TOTAL, Program Changes +2,400 +20

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Coal Management is $9,529,000 and 76 FTE, a program increase 

of $2,400,000 and +20 FTE from the 2012 enacted level.

Inspections and Enforcement (+$2,400,000/+20 FTE) – The 2013 budget proposes an 

increase of $2,400,000 in appropriated funding to be utilized for inspection and enforcement of 

coal production on federal and Indian lands. The requested increase will fund the program at 

roughly the 2011 enacted level. BLM will continue efforts to institute cost recovery fees within 

this program, but the budget recognizes these fees may not be in place by the start of 2013. 

PROGRAM OVERVIEW

Program Components

The BLM is responsible for leasing the Federal coal mineral estate on approximately 570 million 

acres. Over the last decade, 49 percent of the Nation‘s electricity has been generated from the 

use of coal and Federal lands managed by BLM provided approximately 41 percent of that coal.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 122

The BLM currently manages a coal program that consists 

of:

306 Federal coal leases.

Approximately 472,871 acres under lease.

Federal coal leases between 2002 – 2011:

4.59 billion tons of coal produced.

$51.77 billion total value.

$5.67 billion in royalties generated.

Federal coal lease sales offered between 2002 – 2011:

44 lease sales.

79,601 acres leased.

4.43 billion tons of minable coal leased.

$3.355 billion bonus bids generated.

The BLM Coal Management Program is responsible for:

Conducting competitive coal lease sales and ensuring the public receives fair market 

value.

Administering existing coal leases and providing additional approvals to ensure 

compliance with the terms and conditions of the lease.

Processing coal exploration licenses and monitoring operations for compliance.

Processing coal resource recovery and protection plans and modifications to protect the 

public‘s resources from waste and to ensure maximum economic recovery.

Inspecting Federal and Indian coal use authorizations to ensure compliance with the 

authorization‘s terms and conditions.

Independently verifying reported coal production from Federal and Indian coal leases.

Processing Federal coal trespasses.

Taking enforcement actions to ensure compliance with terms and conditions of leases 

and authorizations.

Providing prelease evaluations of mineral tracts when requested by the Bureau of Indian 

Affairs for Indian Tribes and Indian mineral owners.

Critical Factors

In an effort to increase efficiency and to standardize reporting of mine inspections and 

production verification the BLM is working toward the development of a Mineral Tracking 

System (MTS). The MTS will respond to needs identified from a GAO audit in 2003 and 

will implement DOI policy direction. A pilot version of this system was launched in the 

BLM‘s offices in Utah and Wyoming in 2010, and BLM will continue this pilot through 

2013.

Over 50 percent of the BLM‘s engineers, geologists, and land law adjudicators were 

eligible for retirement in 2010. In 2015, a significantly higher percentage of these 

individuals will be eligible for retirement. The best way to prepare new employees to 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 123

successfully accomplish coal workloads is to ensure mining engineers and geologists 

complete the new mine employees safety training, attend certification courses, and are 

provided with adequate on the job training.

Surface coal leasing requires the consent of surface owners prior to holding a lease 

sale. The BLM encourages these surface owners to participate in the land use planning 

process and encourages lease applicants to acquire surface owner consent prior to 

submitting the lease application to the BLM.

The BLM continues to work with the Department of Agriculture‘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.

The BLM and the Department of Labor have developed a Memorandum of 

Understanding delineating roles and responsibilities and action plans necessary to 

provide employees a safer workplace to develop Federal coal.

The BLM is adopting the recommendations for production accountability improvements 

developed in the Report to the Royalty Policy Committee, Mineral Revenue Collection 

from Federal and Indian Lands and the Outer Continental Shelf. This includes the 

development of new guidance regarding inspection and enforcement and production 

verification, as well as providing training courses focused on safety and accomplishing 

inspector‘s duties.

Ensuring environmental protection and maximum recovery of coal resources continues 

to be a priority for BLM.

The BLM coal management program is being reviewed by the Department of the Interior 

Office of the Inspector General.

Other Funding Sources

The Coal Management Program is primarily funded through this subactivity. Another funding 

source is service charges collected from coal lease document processing. The BLM has been 

implementing cost recovery for actions filed with the BLM since a cost recovery rule was 

implemented in 2006. The data shows that, as older actions that predate cost recovery are 

completed and the BLM‘s workload becomes increasingly focused on newer actions that are 

subject to cost recovery, the receipts from cost recovery have increased from approximately 

$125,000 in 2008 to over $350,000 in 2011. The BLM intends to be more aggressive in 

identifying and instituting additional cost recovery fees to cover more of the program‘s costs in 

2013 and beyond.

2013 PROGRAM PERFORMANCE

The BLM anticipates completing processing for approximately 15 percent of the pending coal 

lease applications during 2013, an increase of 8 percent from the 2011 actual level. In an effort 

to create a more efficient application process the BLM grouped lease applications that are in 

close geographic proximity for a streamlined analysis of environmental impacts. The grouped 

Environmental Impact Statements better evaluate the cumulative effects and can be processed 

much faster than sequentially processing the NEPA analysis for each lease application 

individually. Grouping results in multiple lease sales happening over a relatively short period of 

time. However, as the grouping continues, there is a tendency to see groups mature to sale 

together with a longer period of what might appear to be inactivity until the next group matures 

to sale. Processing was completed for 5 percent of coal lease applications in 2009 and 2010. 

There are several group environmental analyses in progress that will yield multiple process 

completions in 2012 and 2013.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 124

Performance Overview

COAL MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Longterm 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 1: Secure America's Energy Resources

Strategy 1: Ensure environmental compliance and the safety of energy development.

Supporting Bureau Measure

Percent of required coal inspection and 

enforcement reviews completed. (BUR)

111% 

2,823 

/2,552

101%

2,828/ 

2,799

99.21% 

2,777 / 

2,799

100%

2,799/

2,799

93%

2,513/

2,700

100%

2,700/

2,700

100%

2,600/

2,600

0%

100%

2,600/

2,600

Strategy 3: Manage conventional energy development

Strategic Plan Measure

Percent of coal lease applications 

processed. (SP)

10% 

4/40

5%

2/38

5% 

2/39

19% 

8/42

7% 

3/42

15% 

6/40

15% 

6/40 0% 13% 5/40

Comment: Coal lease application environmental analyses have expanded to consider coal bed methane and down-stream gas production from federal coal uses 

resulting in lease sale delays due to litigation.

Supporting Bureau Measure

Number of coal post-leasing actions 

approved for energy minerals. (BUR) 297 319 320 253 345 312 315 +3 315
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 125

Activity: Energy and Minerals Management

Subactivity: Other Mineral Resources

2011 

Actual

2012 

Enacted

2013 Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Other Mineral Resources Mgt. 

($000) 10,597 8,402 +100 +2,000 10,502 +2,100

FTE 89 71 0 +17 88 +17

Summary of 2013 Program Changes for Other Mineral Resources Management

Request Component ($000) FTE

Program Changes:

• Inspections and Enforcement +2,000 +17

TOTAL, Program Changes +2,000 +17

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Other Mineral Resources is $10,502,000 and 88 FTE, a program 

change of +$2,000,000 and +17 FTE from the 2012 enacted level.

Inspections and Enforcement (+$2,000,000/+7 FTE) – The 2013 budget proposes an 

increase of $2,000,000 in appropriated funding to be utilized for inspection and enforcement of 

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

program at approximately the 2011 enacted level. BLM will continue efforts to institute cost 

recovery fees within this program, but the budget recognizes these fees may not be in place by 

the start of 2013. 

PROGRAM OVERVIEW

Program Components

The Other Mineral Resources Program is composed of two programs:

Non-Energy Solid Leasable Minerals Program includes potash, phosphate, sodium, and 

gilsonite. It also includes metallic minerals on acquired lands (lead, zinc, copper, etc.).

o Used for fertilizers, glass and papermaking, flue-gas desulfurization, lead-acid

batteries, oil well drilling, water treatment, detergents, and many chemicals.

Mineral Materials Program includes clay, sand, gravel, and building stone.

o Used for construction of roads, foundations, and buildings.

The Non-Energy Solid Leasable Minerals Program is responsible for:

Processing permit, license and lease applications.

Administering existing permits, licenses and leases.

Approving exploration and mining plans.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 126

Conducting NEPA analyses.

Inspecting and monitoring existing authorizations.

Inspecting producing operations to ensure proper reporting of production.

Taking enforcement actions to ensure compliance with terms and conditions of permits, 

licenses and leases.

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.

Investigating and taking enforcement actions on unauthorized removal of mineral 

materials from Federal mineral estate.

Critical Factors

Several factors impact the Other Mineral Resources Program. As the demand by government 

agencies increases for materials used in the development and maintenance of infrastructure for 

communities, the BLM continues to provide sand, gravel, and other mineral materials to State 

and local governments and nonprofit organizations at no cost to those entities. However, this 

results in increased workload for the BLM. 

BLM has been experiencing an increase in mineral materials trespasses, particularly on spiltestates, presumably due to an increase in urban development, and zoning restrictions reducing 

private sources of mineral materials. Thus, it has become important for BLM to conduct 

inspections for unauthorized, as well as authorized, operations. The increasing number and size 

of exploration and mining authorizations, as well as the required analysis of complex technical 

issues, continues to increase the time required to evaluate these authorizations. The same 

holds true for the analysis of the complex environmental issues in environmental documents 

prior to Non-Energy Solid Leasable Minerals permit, license or lease issuances and Mineral 

Materials sales and permits.

The cost of mineral materials disposals, inspections, and lease applications processed per year 

varies due to the size and complexity of the disposals, trespasses, and lease, applications. The 

cost per 1,000 cubic yards of disposal applications processed per year has risen due to the 

increasing level of complexity in environmental impacts and mitigation and the reduced quantity 

per disposal application. Disposal sizes range from a single truckload for immediate production 

to contracts up to ten years for millions of cubic yards.

The cost of processing non-energy permit, license and lease applications and associated postauthorization work similarly varies due to the size and complexity of the application and 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 127

operation. The cost of processing new non-energy applications and post-lease modifications 

has risen due to the increasing level of complexity of environmental impacts and mitigation 

requirements. There are far fewer non-energy operations, but the average non-energy lease 

operation is typically much larger than the average mineral materials operation, and non-energy 

leases typically span multiple decades.

Other Funding Sources

The Other Mineral Resources Program is primarily funded through appropriations in this 

subactivity. Other funding sources include cost recovery fees for processing mineral disposal 

actions such as mineral material competitive sales on a case-by-case basis. There are also 

cost recovery fees for processing new applications for non-energy leases, licenses and permits. 

BLM will continue to look for opportunities to increase program capabilities to meet industry 

demand by charging users appropriate cost recovery fees according to regulation. 

The BLM also receives reimbursement for the costs of material sales for the pipeline system in 

Alaska as required under Public Law 93-153, Section 101, which made amendments to Section 

28 of the Mineral Leasing Act of 1920. Funds are also collected from trespass recovery 

settlements and are used for rehabilitation of damaged property at the trespass site and other 

sites damaged by past mineral materials operations, pursuant to Public Law 94-579, as 

amended, and Public Law 93-153.

Long-Term Goals

The public lands are an important source of non-energy solid leasable mineral resources and 

mineral materials for the Nation. These minerals are vital components of basic industry and life 

in the United States. The Other Mineral Resources Program goal is to provide the minerals 

needed to support local infrastructure and economic development. Demand is increasing 

worldwide for some products generated from non-energy solid leasable minerals, such as 

fertilizers, which are used in producing food and biofuels, and gilsonite, which is used in drilling 

fluids for energy exploration. The program processes sales and permits for mineral materials,

such as sand, gravel, stone, and clays. These common materials are essential for maintenance 

and construction of the access that is needed to provide basic land management. Mineral 

materials are essential for building and maintaining energy development and production 

infrastructure and facilities.

2013 PROGRAM PERFORMANCE

The minerals material workload for the BLM‘s Other Mineral Resources Program increased 

substantially for three years from 2005 through 2007, and then declined in 2008 through 2010 

largely due to the economic downturn. Declines appear to have stabilized and demand is 

expected to increase as recovery from the economic downturn progresses in the second half of 

2011 through 2013. Demand for non-energy solid leasable minerals (especially potash and 

phosphate) has increased substantially for several years, and this increase is expected to 

continue. The number of acres under lease or contract is expected to remain the same in 2013 

as in 2011. The percentage of pending cases of permits and lease and contract applications

processed is expected to remain the same in 2013 as in 2011.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 128

Performance Overview

OTHER MINERAL RESOURCES MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 3: Manage Non-Energy Mineral Development

Strategic Plan Measures

Percent of non-energy mineral 

exploration and development requests 

processed. (SP)

New

in 2011

New

in 2011

New

in 2011

Baseline to 

be 

established

5% 

27/572

10% 

50/475

10% 

50/475 0% 10% 50/475

Number of mined acres reclaimed to 

appropriate land condition and water 

quality standards. (SP) 

7,375 8,315 3,556 3,500 1,317 3,500 3,500 0 3,500

Comment: When the demand for mineral materials, locatable minerals and non-energy leasable minerals is high, fewer mined sites are closed and reclaimed. Out-year 

targets have been adjusted to reflect this demand. Reclamation is performed by the users.

Supporting Bureau Measures

Percent of Mineral Material permits and 

contracts processed for non-energy 

minerals. (BUR)

39% 

783/ 2,022

46% 

948/ 2,081

34% 

664/ 1,925

39% 

780/ 2,000

52% 

1,225/ 

2,340

39% 

780/ 2,000

35% 

700/ 2,000 -4% 35% 700/ 2,000

Cost of Mineral Materials disposals, 

inspection and trespass protection 

divided by the 3 year rolling average 

annual cubic yards disposed. (BUR)

$157 $276 $235 $224 $433 $228 $224 -$4 $224

Percent of Mineral Material trespass 

actions resolved for non-energy 

minerals. (BUR)

31% 

59/ 188

27% 

44 / 163

28% 

44/ 156

25% 

45/ 180

31% 

40/ 127

25% 

45/ 180

25% 

45/ 180 0

25% 

45/ 180

Number of Mineral Material inspections 

and production verifications. (BUR) 3250 3160 3112 2,889 3,319 3,100 3,100 0 3,100

Number of Non-energy Solid Mineral 

inspections and production 

verifications. (BUR)

1435 1240 1220 1,178 1,391 1,200 1,200 0 1,200
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 129

Activity: Energy and Minerals Management

Subactivity: Renewable Energy Management

2011 

Actual

2012 

Enacted

2013 Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Renewable Energy ($000) [21,735] 19,703 +121 +7,000 26,824 +7,121

FTE [106] 106 +47 153 +47

Summary of 2013 Program Changes for Renewable Energy

Request Component ($000) FTE

Program Changes:

• Transfer Geothermal Funds from Oil & Gas Management Subactivity +2,000 +10

• Geothermal Energy Management and Renewable Energy Studies +5,000 +37

TOTAL, Program Changes +7,000 +47

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Renewable Energy Management program is $26,824,000 and 

153 FTE, a program change of +$7,000,000 +47 FTE from the 2012 enacted level.

Transfer Geothermal funds from Oil and Gas Management Subactivity (+2,000,000/+10 

FTE) – The 2013 budget proposes a transfer of $2,000,000/10 FTE from the Oil and Gas 

Management Program into the Renewable Energy Management Program. Leases for 

geothermal development on public lands were offered and administered with $2,000,000 of 

appropriated funding in the Oil and Gas Management program. The management of 

geothermal energy activities is being transferred from the Oil and Gas Management program to 

the Renewable Energy Management program now that the subactivity for Renewable Energy 

Management has been created.

Geothermal Energy Management and Renewable Energy Studies (+$5,000,000/+37 FTE) –

The 2013 budget proposes an increase of $5,000,000 in new funding and 37 FTE. This will 

support additional environmental studies and environmental reviews to accelerate the 

identification of prime areas for utility scale renewable energy development. It will also enable 

BLM to continue ongoing program management responsibilities associated with geothermal 

energy development by replacing mandatory funding previously provided for this purpose 

through the Geothermal Steam Act Implementation Fund, which has expired. New deposits into 

this fund ceased in 2010.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 130

PROGRAM OVERVIEW

The Renewable Energy Management program is responsible for processing right-of-way 

applications for wind energy, solar energy, and renewable energy transmission development. 

Beginning in 2013, the Renewable Energy Management program will also be responsible for all 

aspects of managing geothermal energy development. All renewable energy projects proposed 

for BLM-managed lands receive full environmental reviews under the National Environmental 

Policy Act (NEPA), including the same opportunities for public involvement as other BLM landuse decisions.

The President‘s ―New Energy for America‖ plan has established national goals of producing 10 

percent of the Nation‘s electricity from renewable sources by 2012 and 25 percent by 2025. 

State renewable energy portfolios, investment tax credits for solar energy projects, volatile oil 

prices, and international concern about global warming have all contributed toward public and 

industry interest in utility-scale solar energy development. 

The Renewable Energy Program consists of three main components:

Solar Energy

Wind Energy

Geothermal Energy

Solar Energy

Solar radiation levels in the Southwest are some of the best in the world, and the BLM manages 

more than 20 million acres of public lands with excellent solar potential in 6 states: California, 

Nevada, Arizona, New Mexico, Colorado and Utah. On December 17, 2010, the Department of 

the Interior and the Department of Energy as co-lead agencies published the Draft 

Programmatic Environmental Impact Statement (PEIS) for Solar Energy Development in Six 

Southwestern States. The Solar PEIS seeks to establish, for the first time, a solid foundation for 

long-term, landscape-level planning to help facilitate better, smarter siting of utility-scale solar 

projects that avoids or minimizes conflicts with important wildlife, cultural and historic resources. 

A Supplement to the Draft Solar PEIS published on October 28, 2011 responds to extensive 

comments on the Draft PEIS and proposes incentives for solar developers who site projects in 

solar energy zones, offering reduced permitting times and a sufficiently flexible variance process 

to allow development of well-sited projects outside of zones. The Supplement also makes clear 

that the solar program will continue to incorporate other parallel planning efforts, including state 

level efforts, to establish additional solar energy zones to meet market demand. Publication of a 

Final PEIS is scheduled for July 2012. The preferred alternative includes 17 solar energy 

zones, totaling about 285,000 acres potentially available for solar energy development.

In 2010, the BLM approved the first utility-scale solar energy projects on public lands. To date, it 

has approved 15 such projects that include all of the technologies considered to be 

commercially viable (parabolic trough, power tower, dish engine, and photovoltaic systems). 

The projects range in size from a 45-megawatt photovoltaic system on 422 acres to a 1,000-

megawatt parabolic trough system on 7,025 acres. These 15 projects have the potential to 

generate over 5,000 megawatts of clean, renewable energy—enough energy to power over 1.5 

million homes—and to create over 10,000 jobs.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 131

Wind Energy

The Bureau of Land Management manages 20.6 million acres of public lands with wind 

potential. The BLM has authorized 198 rights-of-way for the use of public lands for wind energy 

site testing or development. Of these, 29 authorizations have a total installed capacity of 437 

megawatts. 

A Programmatic Environmental Impact Statement (PEIS) relating to the authorization of wind 

energy projects was completed in June 2005. This EIS provides an analysis of the development 

of wind energy projects in the West. In conjunction with the publication of this EIS, the BLM 

amended 52 land use plans to allow for the use of applicable lands for wind energy 

development. BLM offices are able to use this EIS as an aid in analyzing impacts for specific 

applications for the use of public lands for wind energy use. The BLM issued a wind energy 

policy in December 2008 to provide guidance on best management practices (BMPs); measures 

to mitigate potential impacts on birds, wildlife habitat, and other resource values; and guidance 

on administering wind energy authorizations. 

The BLM continues to conduct studies necessary to evaluate and process applications for 

rights-of-way for the siting of wind energy projects and applications for rights-of-way for electric 

transmission lines from these projects. The BLM currently has some 45 pending wind energy 

development applications on the public lands with a potential capacity of over 7,000 megawatts. 

Since 2010, the BLM has approved three wind energy projects on public lands in California, 

Nevada, and Oregon with a combined potential to generate 440 megawatts of clean, renewable 

energy—enough energy to power over 150,000 homes—and to create nearly 1,000 jobs.

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 818 

geothermal leases, with 59 leases in producing status generating about 1,275 megawatts of 

installed geothermal energy on public lands. This amounts to over 40 percent of U.S. 

geothermal energy capacity and supplies the electrical needs of about 1.2 million homes. In 

May 2007, the Department of the Interior published final regulations on geothermal energy 

production on public lands requiring more competitive leasing, offering simplified royalty 

calculations, and sharing $4 million per year in current royalties with counties where production 

occurs. 

A PEIS to assess geothermal leasing on the public lands was completed in October 2008. The 

subsequent Record of Decision amended 114 BLM resource management plans and allocated 

about 111 million acres of Bureau-managed public lands as open for leasing. An additional 79 

million acres of National Forest System lands are also legally open for leasing. Since 2010, the 

BLM has approved eight priority geothermal projects on public lands in Nevada with a combined 

potential to generate 407 megawatts of clean, renewable energy—enough energy to power over 

400,000 homes—and to create 700 jobs.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 132

Competitive Leasing Process

The BLM is in the process of implementing an innovative 

strategy to promote renewable energy development at 

appropriate sites in areas that have been determined in 

advance to be optimal for wind and solar energy production. 

The BLM plans to offer these specific parcels to potential 

applicants through a competitive process and to approve 

right-of-way applications in an expedited fashion, due to the 

upfront environmental analysis. This process will likely 

reduce the total number of applications and encourage 

future applicants to focus on large capacity projects on 

lands close to existing or planned transmission capability.

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. The Department has established a Renewable 

Energy Priority Performance Goal to, by September 30, 

2013, increase approved capacity authorized for renewable 

(solar, wind, and geothermal) energy resources affecting Department of the Interior managed 

lands, while ensuring full environmental review, by at least 11,000 Megawatts. 

The Department will successfully meet these goals if a majority of the energy projects that were 

designated as priority projects for 2012 and 2013 are approved. The primary factors that will 

influence renewable energy growth going forward are continued infrastructure investment and 

technology improvements, both in the method and efficiencies of generation of renewable 

energy and in transmission of that energy from source to end-use.

2012 Project Status

In 2012, the BLM will be giving priority status to 17 projects (9 solar, 6 wind, and 2 geothermal) 

representing about 7,000 megawatts. BLM developed this priority list in collaboration with the 

Bureau of Indian Affairs, the U.S. Fish and Wildlife Service and the National Park Service, with 

an emphasis on early consultation. The 2012 priority projects were selected based on a variety 

of criteria, including progress of the necessary public participation and environmental analysis 

under NEPA and applicable state environmental laws. The BLM also used the screening criteria 

for priority solar and wind projects, developed through BLM policy memoranda issued in 

February 2011, to assist in evaluating and prioritizing the projects on its 2012 priority list.

2013 PROGRAM PERFORMANCE

In 2013, the Bureau of Land Management will continue to implement the strategy to:

Construction of wind turbines at 

the Dry Lakes Wind Project

In June 2011 the BLM Director 

signed a proposed new Wind Energy 

Rental wind energy policy. The new 

Rental Policy will increase wind rents 

for the existing $4,155 per MW to 

$6,570 per MW. In addition, a per 

acre Base Rent will be required for 

all wind energy development 

projects.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 133

Increase smart renewable energy development on public lands.

Support the Department’s Renewable Energy Priority Performance Goal to increase the 

approved capacity authorized for renewable (solar, wind, and geothermal) energy resources 

affecting Department of the Interior managed lands, while ensuring full environmental review, 

by at least 11,000 Megawatts by September 30, 2013.

In 2013, the BLM will begin implementation actions regarding identifying leasing and 

development opportunities for solar energy projects in designated solar energy zones. 

Making these lands available for BLM leasing proposals will provide for the best siting 

locations for environmentally sound solar energy development projects. The BLM has 

initiated a rulemaking process to establish rules to guide this leasing program to include 

a nomination and request for proposal process, with the expectation that this will 

ultimately lead to a competitive leasing program to accelerate the process of offering 

public lands for solar energy development.

.

Sage-grouse Initiative: While guiding and managing new renewable energy projects, the BLM has 

expanded efforts to formally involve states, tribes, local governments, and the public in addressing sagegrouse observation. The BLM will expand the use of new science and mapping technologies to improve 

land use planning and develop additional measures to conserve sage-grouse habitat while ensuring that 

renewable energy production and other uses of Federal lands continue as appropriate.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 134

Performance Overview

RENEWABLE ENERGY MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Longterm 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 1: Secure America's Energy Resources

Strategy 2: Develop Renewable Energy Potential

Strategic Plan Measure

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)

1,398 1,526 1,610 10,526 7,083 11,526 12,526 +1,000 15,526

Comment: BLM had previously incorrectly reported prior-year totals for authorized MW of capacity on Federal lands. Prior year data was adjusted to include all known 

projects of installed and approved capacity on public lands through the end of FY09. In 2013, the Strategic Plan measure definition will be modified to include connected 

action projects. The Strategic Plan measure includes all MW of capacity on Federal lands which were authorized prior to the development of the Secretary‘s Priority 

Goal.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 135

Activity: Realty and Ownership Management

Subactivity

2011

Actual

2012

Enacted

2013 Change

from

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes

(+/ -)

Program

Changes

(+/ -)

Budget

Request

Alaska 

Conveyance

$ 29,108 29,061 +119 -12,439 16,741 -12,320

FTE 165 165 0 -60 105 -60

Cadastral 

Survey

$ 12,392 11,996 +109 0 12,105 +109

FTE 97 96 0 0 96 0

Lands & 

Realty Mgmt.

$ 56,400 32,605 +297 +3,000 35,902 +3,297

FTE 406 300 0 0 300 0

Total Activity $ 97,900 73,662 +525 -9,439 64,748 -8,914

FTE 668 561 0 -60 501 -60

The 2013 budget request for the Realty and Ownership Management activity is $64,748,000 

and 501 FTE, a net change of -$9,439,000 and -60 FTE from the 2012 enacted level, of which 

+$3,000,000 is an internal transfer and -$12,439,000 and -60 FTE is a program decrease.

ACTIVITY DESCRIPTION

The Realty and Ownership Management activity has three programs that are focused on the 

use of lands and transfer of BLM-managed lands.

The Alaska Conveyance program transfers BLM lands in Alaska to other ownership

pursuant to a number of laws.

The Cadastral Survey program provides cadastral survey services that are an important 

component to managing both Federal and private lands.

The Lands and Realty Management program authorizes uses of the land for rights-ofway, for pipelines, transmission lines for electricity and renewable energy, and other 

uses. This program also authorizes uses of the public lands for commercial filming and 

other purposes, and implements changes to land ownership by exchanging and 

purchasing lands, and by selling lands no longer needed for Federal purposes.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 136

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 137

Activity: Realty and Ownership Management

Subactivity: Alaska Conveyance and Lands

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs &

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Alaska Conveyance ($000) 29,108 29,061 +119 -12,439 16,741 -12,320

FTE 165 165 0 -60 105 -60

Major Program IT Investments:

Alaska Land Information System 

(ALIS) 254 247 0 0 247 0

Summary of 2013 Program Changes for Alaska Conveyance

Request Component ($000) FTE

Program Changes:

• General Program Decrease -12,439 -60

TOTAL, Program Changes -12,439 -60

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Alaska Conveyance and Lands program is $16,741,000 and 

105 FTE, a program change of -$12,439,000 and -60 FTE from the 2012 enacted level.

General Program Decrease (-$12,439,000/-60 FTE) – The BLM is reducing base funding for 

the Alaska Conveyance and Lands program as part of an effort to reevaluate and streamline the 

conveyance process. Conveyance work has been ongoing since the 1960s and the 2004 

Alaska Land Transfer Acceleration Act has allowed BLM to streamline the conveyance program 

and reduce program costs. The BLM is developing several procedures to enhance efficiency 

and continues to work to further streamline the program so that resources are focused on 

completing the goal of transferring title to 150 million acres the agency is required to convey. 

The BLM has already issued final or interim conveyance on most of these acres, and is 

developing a strategy to complete final transfers.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 138

Performance Change

ALASKA CONVEYANCE AND LANDS

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 5: Building a 21st Century Department of the Interior 

Goal 5: Improving Acquisition & Real Property Management

Strategy 1: Effective Management of Facilities

Supporting Bureau Measure

Percent of land patented to the State 

and Alaskan Native Corporations as 

required by statute. (BUR)

55%

82,245,500/ 

150,497,040

56%

84,011,156/ 

150,497,040

58% 

86,980,542/ 

150,149,007

59%

88,480,542/

150,147,007

59% 

88,341,737/ 

150,149,836

62%

92,341,737/

150,147,007

62%

93,841,737/

150,149,836

0%

-500,000

65%

97,341,737/

150,149,836

Comment: Performance change in this measure occurs about two years after the funding change due to the processing time between the final patent and survey completion. Patents 

are typically issued 18 to 24 months after surveying. For instance, work funded in 2011 will affect performance shown in 2013. The denominator in this measure is subject to change 

as estimates of entitlement acreages are replaced with actual sizes following cadastral survey.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 139

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 the conflicts between these laws and established 

deadlines for Alaska Native corporations and the State of Alaska to file final selection priorities.

The Alaska Conveyance and Lands program performs adjudication, cadastral survey, easement 

identification, land examination, and land record review to complete the land patent process.

Cadastral surveying of lands is a crucial step as it provides physical evidence 

demarcating the boundaries of lands being transferred.

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 to public lands. The 

BLM provides extensive outreach to Native corporations, including face-to-face meetings with 

corporate boards in local communities, and to the State of Alaska to obtain final conveyance 

priorities.

Cadastral Survey: The cadastral survey component of the Alaska Conveyance and Lands

program prepares supplemental plats from existing survey plats and other information when 

possible; makes administrative title navigability determinations to facilitate conveyance; makes 

administrative determinations of emerged island title claims; issues recordable Disclaimers of 

Interest of Title for the beds of navigable rivers and other waterways; performs responsibilities 

as trustee for Alaska Native townsites created under the Alaska Native Townsite Act; provides 

assistance in determining maps of boundaries and performs surveys for Village corporation 

reconveyances required under Section 14(c) of the ANCSA; collects Geographic Coordinate 

Data Base (GCDB) data to distribute through the web-based Spatial Data Management System 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 140

(SDMS); and maintains up-to-date digital copies of all survey records to distribute through the 

SDMS.

Easement Identification: Easement identification must be completed pursuant to Section 17(b) 

of the ANCSA for Native corporation selections that have not been transferred. This process 

involves participation by the public, the State of Alaska, and the corporations themselves.

Land Examination: On the ground land examinations are conducted to resolve conflicts between 

Native allotment claims and to settle use and occupancy matters, including trespass and the 

presence of hazardous materials.

Land Record Review: In 2004, the Acceleration Act established deadlines for ANCSA 

corporations and the state to file priorities. Throughout Alaska, millions of the same acres were 

applied for by village corporations, regional corporations and the state. As part of the 

conveyance process, the BLM reviews selections to identify conflicts and ensure correct 

depiction in land records.

Provisions in the 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 all right, title, and interest of the Federal government, but 

final patents 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. Patents are dependent upon survey plats, and the patenting process follows 

approximately 18 months after field survey operations have been initiated.

The Acceleration Act provides authority to round up acreages, settle final selection entitlement 

matters, and determine land selections withdrawn, segregated or relinquished. Since 2003, the 

BLM has conducted face to face meetings with Alaska Natives in hundreds of remote locations 

to obtain or clarify evidence on Native allotment claims and with Native corporation 

representatives to discuss selection and title matters. Because it is not appropriate to use 

Interim Conveyance and Tentative Approval where unresolved issues remain, title conveyances 

are increasingly dependent upon field survey and survey plats for issuance of patents. 

The next phase of Native corporation and state adjudication requires meetings to resolve 

conflicts between corporation and state selections so field survey instructions can be written 

with detail sufficient for future patenting. In addition, meetings between the corporations and the 

state will be coordinated by BLM personnel to resolve easement conflicts so the easements on 

unsurveyed land can be matched with easements on land that has already been patented.

By the end of 2011, BLM had surveyed and patented 88 million acres, or 59 percent of the 

original 150 million acres. Approximately 55 million, or 36 percent, of the acres are under some 

form of tentative conveyance but have not been surveyed. Additionally, about 7 million acres, or 

five percent, of the lands need to be both surveyed and conveyed.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 141

New Business Process

In FY 2011, the BLM began testing a new type of survey or business process which, if adopted,

would expedite issuance of final patent in Alaska. This new type of survey would be used on 

large areas where development is not anticipated to occur soon, and where land ownership is 

homogeneous and less complex. It would eliminate the time and expenses of the survey field 

tasks for most of the survey monumentation, and substitute geodetic coordinates (latitude and 

longitudes) in lieu of on-the-ground, survey monumentation. The BLM is evaluating 

opportunities to use this new procedure in the future.

Lands not yet conveyed 

by Interim Conveyance, 

surveyed, or patented

4%

Land conveyed by 

Interim Conveyance, but 

not yet surveyed or 

patented

34%

Lands surveyed and 

patented to Alaska 

Native corporations

62%

Progress in Conveying 45.6 Million Acres to Alaska Native 

Corporations1

Lands not yet 

Tentatively Approved, 

surveyed, or patented

5%

Land conveyed by 

Tentative Approval, but 

not yet surveyed or 

patented

Lands surveyed and 37%

patented to the State of 

Alaska

58%

Progress in Conveying 104.5 Million Acres to the State of 

Alaska1

1 Data are current as of September 30, 2011. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 142

2013 PROGRAM PERFORMANCE

In 2013, the BLM will approve 3,000 miles of prior cadastral field survey and complete 533 miles 

of new field survey. Most new cadastral field survey work will be contracted under the 

provisions of The Indian Self Determination and Education Assistance Act. The BLM will also 

process 40 Native allotment claim applications, and patent acreage surveyed and platted in 

previous years. Approximately 800,000 acres of Native corporation entitlements and 400,000 

acres of the State of Alaska entitlement will be patented. Transfer of title through Interim 

Conveyance or Tentative Approval will be completed as necessary for Native corporations and 

the State of Alaska.

A combined total of 17,080 parcel applications were filed under the 1906 Native Allotment Act

and the Alaska Native Veteran Allotment Act of 1998. Over 16,747 of these claims have been 

closed through patent or rejection, leaving fewer than 330 applications pending. Although the

1906 Native Allotment Act was repealed by the ANCSA, claims pending with the Department up 

to the time of repeal still must be addressed by BLM. A total of 45.6 million acres of Native 

corporation entitlements have been identified; survey has been completed and patents have 

been issued for 28.1 million acres (62 percent), leaving 17.5 million acres (38 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 60.2 million acres (58 percent), leaving 44.3 

million acres (42 percent) that still require survey and patent. The majority of the land not 

surveyed and patented is under either interim conveyance or tentative approval.

The BLM will also continue to examine opportunities for additional program reforms and 

efficiencies to complete final transfers in a timely manner. During FY 2011, restructuring of the 

Alaska Conveyance program and voluntary separation incentives resulted in a reduction of 86 

FTE from the FY 2010 level. The BLM expects to reduce FTE to 105 in FY 2013, through a 

continuation of program redesign, re-assignments and other management techniques. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 143

Performance Overview

ALASKA CONVEYANCE AND LANDS

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 5: Building a 21st Century Department of the Interior 

Goal 5: Improving Acquisition & Real Property Management

Strategy 1: Effective Management of Facilities

Supporting Bureau Measure

Percent of land patented to the State 

and Alaskan Native Corporations as 

required by statute. (BUR)

55%

82,245,500/ 

150,497,040

56%

84,011,156/ 

150,497,040

58% 

86,980,542/ 

150,149,007

59%

88,480,542/

150,147,007

59% 

88,341,737/ 

150,149,836

62%

92,341,737/

150,149,836

62%

93,841,737

150,149,836

0%

65%

97,341,737/

150,149,836

Comment: Performance change in this measure occurs about two years after the funding change due to the processing time between the final patent and survey completion. Patents 

are typically issued 18 to 24 months after surveying. For instance, work funded in 2011 will affect performance shown in 2013. The denominator in this measure is subject to change 

as estimates of entitlement acreages are replaced with actual sizes following cadastral survey. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 144

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 145

Activity: Realty and Ownership Management

Subactivity: Cadastral Survey

2011 

Actual

2012 

Enacted

2013

Change 

from 2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Cadastral Survey ($000) 12,392 11,996 +109 0 12,105 +109

FTE 97 96 0 0 96 0

Other Major Resources:

Transfer: BIA Cadastral 

(1910) 11,000 2,945 0 +7 2,952 +7

FTE 125 62 0 0 62 0

Trust Fund: Public Survey 

(7130) 602 782 0 0 782 0

Transfer: USFS Cadastral 

(9820) 426 110 0 0 110 0

Transfer: NPS, FWS, Other 

Agencies(1910) 3,000 3,000 0 0 3,000 0

Major Program IT Investments:

Geographic Coordinate Data 

Base (GCDB) Data Prep 

Software 229 0 0 0 0 0

General Land Office 

Automated Records System 

(GLO) 41 0 0 0 0 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Cadastral Survey program is $12,105,000 and 96 FTE, no 

change from the 2012 enacted level.

PROGRAM OVERVIEW

The Cadastral Survey program conducts the official Federal Authority Surveys that are the 

foundation for all land title records in large sectors of the United States and provide Federal and 

Tribal land managers, and their adjoining non-Federal landowners, with information necessary 

for the management of their lands. Several statutes and delegations vest authority in the BLM to 

provide cadastral survey services for itself and the other Federal land management agencies, 

including the National Park Service, the U.S. Fish and Wildlife Service, Bureau of Reclamation, 

and the Forest Service. This program provides direct support to the BLM‘s renewable energy, 

minerals, realty, law enforcement, forestry, recreation, and fire programs; helps to reduce 

unauthorized use; assists with development activities on BLM-managed lands; and, helps fulfill 

the Secretary‘s fiduciary trust responsibilities for surveys in Indian Country.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 146

Conducting Federal Authority Surveys requires the determination of boundaries, the marking of 

corner positions with ―brass cap‖ markers 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 cadastral survey 

and Geographic Coordinate Data Base (GCDB) services as requested in support of renewable 

energy projects; and updating and modernizing riparian boundaries where resources and land 

values are at a premium.

The Cadastral Survey program analyzes proposed projects to determine the most efficient level 

of cadastral services necessary to complete projects while balancing varying levels of risk. 

Analysis of geospatial information in a land survey-based Geographic Information System (GIS), 

in conjunction with land records research, can often provide less costly, office-generated 

products and services. This strategy has allowed services to be better directed towards the

BLM’s Land Information System

Cadastral survey provides accurate location of the Public Land Survey System 

which in turn supports BLM’s multiple use mandate while protecting BLM’s 

lands from unauthorized use.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 147

need and avoid the expense of the more costly Federal Authority Survey. An example of 

established policy for providing office products is the Standards for Indian Trust Lands Boundary 

Evidence referenced in the Departmental Manual, 303 DM 7. The BLM‘s Cadastral Survey 

program oversees the Certified Federal Surveyor Program to leverage BLM‘s specialized 

expertise of Indian land boundaries to over 500 private sector land surveyors trained how to 

protect the rights of American Indians and their land.

The BLM uses the GCDB to represent land ownership boundaries in a coordinated,

standardized digital fashion. GIS layers depend on GCDB data as the base layer for many BLM 

processes including leasing, sales, exchanges, and stipulations. This base layer provides actual 

on-the-ground reference to the other layers of information.

In addition, the BLM is the custodial agency for land tenure records that date back to the 1800s. 

The Cadastral Survey program currently manages over nine million title documents as well as 

cadastral survey records from across the nation. The General Land Office (GLO) Automated 

Records System, located at the Eastern States Office, is responsible for making land tenure

records available on the Internet via the BLM GLO Records website

(http://www.glorecords.blm.gov). BLM staff members scan, index, and verify cadastral survey 

plats and field notes, and patents (both old and new) that reside with the other historical land 

records on the website.

Other Funding Sources

Approximately 45 percent of all work completed by the Cadastral Survey program is funded by 

other benefitting BLM subactivities and other benefitting agencies. In addition, GCDB activities 

are supported partially through partnerships with states, counties, and municipalities. In the 

past, these partnerships have allowed the BLM to leverage resources while benefitting all

parties to the agreement.

2013 PROGRAM PERFORMANCE

In FY 2013, the BLM will continue to perform the core functions of overseeing and approving 

surveys, addressing public inquires, consulting with staff members from other programs to 

advise on boundary issues, providing guidance and oversight for field surveys paid for by other 

entities, and managing the GCDB.

In FY 2011, the BLM reorganized staff functions within the Cadastral Survey program to 

minimize the effects of a reduction of $8 million in reimbursable funding provided to the BLM by 

the Bureau of Indian Affairs. The BLM continues to refine and reorganize survey functions 

within a zone structure to address the reduction of this funding in FY 2012 and 2013. These 

functions include survey quality review, contract oversight, GCDB production, protest and 

appeals processing, land records management, and riparian boundary support. Leadership 

positions will be evaluated as vacancies occur to best fit priorities within the framework of any 

new zone structure.

In addition, the BLM will 

continue to implement nine 

recommendations from a 

recently issued Office of the 

Inspector General (OIG) final 

Project Selection Process: BLM State Offices produce detailed 

proposals using guidance in the Instruction Memoranda #2011-011. The 

top proposals are reviewed by a panel and ranked according to criteria 

aligned with recommendations in the OIG report. As funds are identified, 

and leveraged with partner funding, the highest ranked proposals are 

funded. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 148

audit report, ―Department of the Interior‘s Management of Land Boundaries‖ (Audit No. C-INMOA-0001-2009). This report states that ―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 issues 

guidance to BLM State Offices through Instruction Memoranda directing them to identify lands 

with revenues lost or at risk due to antiquated boundary evidence. Each year, the lands with the 

loss or risk are prioritized to receive the necessary cadastral services.

In response to the OIG report, BLM is also developing and implementing new policies to ensure 

that cadastral surveyors review the adequacy of boundary evidence prior to the approval of 

significant land transactions and commercial projects. Any actions concerning high-valued 

lands or resources will be reviewed, as necessary, for the protection of the lands and resources 

and to ensure the proper collection of rents and protection of public lands and resources from 

unauthorized uses. When a cost recovery account is employed in providing a cadastral service, 

the account will be used for any cadastral services necessary to support the protection of public 

or Native American resources.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 149

Performance Overview

CADASTRAL SURVEY

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 5: Building a 21st Century Department of the Interior 

Goal 5: Improving Acquisition & Real Property Management

Strategy 1: Effective Management of Facilities

Supporting Bureau Measures

Percent of survey projects of Federal 

and Indian Trust lands that are funded. 

(BUR)

25%

360/1,464

23%

336/1,435

31% 

401/1,304

16% 

258/1,570 

22% 

338/1,570 

9% 

143/1,570

9% 

143/1,570 0%

9% 

143/1,570

Percent of cadastral surveys approved 

within 18 months of the funding date. 

(BUR)

54% 

350/645

83%

530/636

49% 

301/611

68% 

280/409

78% 

320/409

38% 

156/409

38% 

156/409 0%

38% 

156/409

Comment: The decreases in performance for 2012 and 2013 are due to the expected reduction in BIA reimbursable funding.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 150

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Activity: Realty and Ownership Management

Subactivity: Lands and Realty Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Land & Realty Mgt. ($000) 56,400 32,605 +297 +3,000 35,902 +3,297

FTE 406 300 0 0 300 0

Other Major Resources:

SCDF: Rights of Way Processing 

(5101-3) 16,346 16,400 0 0 16,400 0

Trust Fund: Rights of Way (7150) 0 0 0 0 0 0

Summary of 2013 Program Changes for Land & Realty Management

Request Component ($000) FTE

Program Changes:

• Transfer from Land & Resource Information Systems +3,000 0

TOTAL, Program Changes +3,000 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Lands and Realty Management program is 

$35,902,000 and 300 FTE, and reflects an internal transfer resulting in a net program 

change of +$3,000,000 from the 2012 enacted level.‖

Transfer from Land and Resource Information Systems (+$3,000,000) – The budget

transfers $3,000,000 to Lands and Realty Management from the Land and Resource 

Information Systems subactivity for the funding of lands and realty information systems. This 

business practice is consistent with the ownership, management and funding of other BLM 

information systems by benefitting programs.

PROGRAM OVERVIEW

The Lands and Realty Management program grants rights-of-way and other use authorizations 

for public lands and conducts public land sales, exchanges and withdrawals. Rights-of-way are 

granted for many purposes, including electricity transmission, roads, and water pipelines. 

In October 2009, nine Federal departments and agencies approved a Memorandum of 

Understanding (MOU) to expedite the siting of electric transmission facilities. In June 2011 the 

same agencies created a Rapid Response Team for Transmission (RRTT). Expediting the 

siting of electric transmission projects on BLM-administered lands is a priority of the Secretary 

of the Interior. The emphasis on these projects was reiterated in the August 31, 2011, 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 152

Presidential Memorandum to executive departments and agencies, Speeding Infrastructure 

Development through More Efficient and Effective Permitting and Environmental Review.

The BLM administers approximately 170,000 rights-of-way on the public lands. Many 

companies apply to the BLM each year to obtain right-of-way grants to use the public lands for 

roads, pipelines, transmission lines, and communication sites. Energy-related rights-of-way 

play an essential part in the transportation of energy sources, from either oil or gas production 

areas or electricity that has been generated from a variety of sources, such as hydropower, coal 

or gas-fired generators, and geothermal, to areas where the energy is used, such as at large 

communities or in industrial sites. Rights-of-way for communication sites are required to install 

equipment necessary for the transmission of television broadcasts and the cellular phone 

network. Rights-of-way assist in providing for basic access, power, and communication 

infrastructure needs of cities, towns, and rural communities. The Lands and Realty 

Management program manages most of these rights-of-way. The program issues and amends 

right-of-way authorizations, conducts on-the-ground inspections to ensure compliance with 

terms and conditions of the authorization, and conducts studies to determine the suitability of 

future right-of-way locations and uses.

Other use authorizations are granted for commercial filming, public facilities, and similar short 

and long-term purposes as allowed by law. The BLM provides the terms and conditions for all 

of these uses, and monitors users to ensure compliance.

The Lands and Realty Management program also conducts land sales, exchanges and 

withdrawals to ensure efficient and effective management of the public lands. Land exchanges 

and withdrawals can be useful land management tools under the proper circumstances. The 

BLM authorizes, reviews, and revokes land withdrawals to ensure the most appropriate uses 

and works closely with the Department of Defense to coordinate withdrawals for military 

purposes, resolve issues with over-flights, and coordinate management of adjacent military and 

public lands. The BLM also grants lands to local governments for recreation and public 

purposes at reduced cost using its authority under the Recreation and Public Purposes Act.

Other Funding Sources

The Federal Land Transaction Facilitation Act (FLTFA): The Budget proposes to reauthorize 

FLTFA by eliminating the Act‘s sunset date and allowing lands identified as suitable for disposal 

in recent land use plans to be sold using the FLTFA authority. FLTFA sales revenues would 

continue to be used to fund the acquisition of environmentally sensitive lands and the 

administrative costs associated with conducting sales. FLTFA was first enacted in July 2000. It 

provided for the use of a percentage of revenues from the sale or exchange of public lands 

identified for disposal under land use plans in effect as of the date of enactment to acquire

inholdings within certain federally designated areas, or lands adjacent to those areas, which 

contain exceptional resources, and to administer the sale program. Of the funds used for 

acquisition, 80 percent were to have been expended in the same state in which the funds were 

generated, but 20 percent could have been expended for acquisition in any of the 11 other 

Western states. Up to 20 percent of revenues from disposals may have been used for 

administration costs and other expenses. FLTFA expired in July 2010, but was subsequently 

reauthorized for one year, expiring in July 2011. 

The Southern Nevada Public Land Management Act of 1998 (SNPLMA) became law in October 

1998. It allows the BLM to sell public lands within a specific boundary around Las Vegas, NV. 

The revenue derived from these land sales is split between the State of Nevada General 

Education Fund (5 percent), the Southern Nevada Water Authority (10 percent), and a special 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 153

account (85 percent) available to the Secretaries of the Interior and Agriculture for use 

throughout Nevada for parks, trails and natural areas; capital improvements; conservation 

initiatives; multi-species habitat conservation plans; environmentally sensitive land acquisition; 

and Lake Tahoe restoration projects. Other provisions in SNPLMA direct certain land sale and 

acquisition procedures and provide for the sale of land for affordable housing.

Please see the Permanent Operation Funds Chapter for more information on FLTFA, SMPLMA, 

and other land sales accounts.

Cost Recovery: The BLM recovers costs from authorizing rights-of-way and other activities on 

public lands. Although the BLM is authorized to use cost recovery to process some right-of-way 

applications, others, such as those requested by state and local governments, are not subject to 

cost recovery. These accounts and the funding collected are shown in the Service Charges, 

Deposits, and Forfeitures Chapter.

2013 PROGRAM PERFORMANCE

In 2013, the BLM will place an emphasis on evaluating applications for rights-of-way for energy 

transmission. An increase in solar and wind development in the Western States has created a 

need for more energy transmission lines, most of which cross public lands.

The BLM will also continue to issue rights-of-way, conduct public land sales, revoke public land 

withdrawals and facilitate military base closures. The BLM will review public land withdrawals 

and anticipates revoking withdrawals for 56,000 acres. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 154

Performance Overview

LANDS AND REALTY MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 1: Secure America's Energy Resources

Strategy 3: Manage conventional energy development

Supporting Bureau Measure

Percent of pending cases of right-of-way 

permits and grant applications in backlog 

status. (BUR)

51%

1,656/

2,965

51%

1,525/

2,965

53% 

1,558/ 

2,965

53% 

1,558/ 

2,965

92% 

1,872/ 

2,041 

49% 

1,450/ 

2,965

50% 

1,500/ 

3,000

+1%

50% 

1,500/ 

3,000

Comment: The 2011 Actual column displays an increase in the numerator due to more applications completed but a decrease in the denominator due to fewer applications received. 

Mission Area 5: Building a 21st Century Department of the Interior 

Goal 5: Improving Acquisition & Real Property Management

Strategy 1: Effective Management of Facilities

Supporting Bureau Measures

Number of public land title records posted on 

the Internet to assist title, survey, historical, 

and genealogical research and retrieval. 

(BUR)

180,450 244,359 531,813 254,917 228,845 229,500 229,500 0 229,500

Percentage of total acreage of land sales 

offered by competitive or modified 

competitive means. (BUR)

80% 

7,871/ 

9,802

28% 

3,296/ 

11,849

71% 

8,404/ 

11,849

68% 

8,100/

11,849

4% 

454/

11,849

67% 

7,990/ 

11,849

64% 

7,591/ 

11,849

-3%

64% 

7,591/ 

11,849

Comment: Due to declining land sales and unusual market stability in 2011, the BLM realized a decrease in the total acreage of land sales displayed in this measure. The market is 

expected to rebound in 2012 and 2013.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 155

Activity: Communication Site Management

Subactivity: Communication Site Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Communication Sites ($000) 2,000 2,000 0 0 2,000 0

Communication Sites Offset 

($000) -2,000 -2,000 0 0 -2,000 0

FTE 20 19 0 0 19 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Communication Site Management program is $2,000,000 and 

19 FTE.

PROGRAM OVERVIEW

The Communication Site Management program processes applications for communications 

sites from commercial, private, and governmental entities under Title V of the Federal Land 

Policy and Management Act of 1976 (FLPMA) and issues right-of-way use authorizations. The

program considers requests for new sites, inspects and administers existing sites and 

authorizations, completes site management plans, and collects rental fees.

When granting and administering authorizations, the BLM works to protect the natural resources 

associated with public and adjacent lands. The Bureau tries to prevent unnecessary or undue 

degradation to public lands by promoting the use of communication site rights-of-way and 

leases in common, considering engineering and technological compatibility, national security, 

and land use plans. The BLM also coordinates, to the fullest extent possible, all BLM actions 

under the program with state and local governments, interested individuals, and appropriate 

quasi-public entities.

Demands and Trends

The BLM has authorized over 3,600 separate rights-of-way for communication sites to date. 

Prior to 1996, each user had to have a separate authorization, even when users shared a site. 

In response to the Telecommunications Act of 1996, the BLM implemented new regulations and 

policies that greatly simplified and streamlined the authorization and administration of these 

uses. The BLM now requires only the owners of the towers and facilities to have right-of-way 

authorizations, while other users of the sites can collocate in these facilities, as tenants or 

customers, without further approval from the BLM. In 1996, there were 3,313 authorized

communications users on BLM administered land. Now, in 2012, there are over 6,800 

authorized users representing a 105 percent increase in authorized users since 1996. The BLM 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 156

has increased rental fee collections from $2,000,000 in 1996, $6.7 million in 2011, to an 

estimated $7,000,000 in 2012.

A significant challenge facing the BLM is ensuring that holders of communication site leases 

report accurate inventories of uses within their facilities, so the Bureau can assess and collect 

the appropriate rent. Based on recent compliance inspections by program administrators, it is 

estimated that for every dollar of rent collected, there is at least another dollar that is not. In 

order to better manage the development and use of 

communications sites and to mitigate the impacts 

upon surrounding public lands, the BLM develops

communication site management plans, which guide 

use and analyze the impacts of the structures on the 

sites on the surrounding lands. These plans allow the 

BLM to better manage sites, and often result in the collection of additional rent revenues. The 

Bureau‘s goal is to develop site management plans for all communication sites located on the 

public lands it manages. To date, the BLM has prepared 253 out of the total 1,485 site 

management plans needed.

In recent years, the Bureau has focused on strengthening partnerships and improving its suite 

of BLM, inter-agency and industry sponsored right-of-way 

management courses, including the Communication Site 

Management Course, the National Lands Training for 

Line Officers, and the Lands and Realty Academy. 

Beginning in 2011, the BLM initiated a pilot project that 

centralizes billing and collection of communication use 

rent. Centralization is expected to result in an increase of 

$1,000,000 in rents collected due to improved reviews 

resulting in identification of unreported rent. The 

specialists processing the payments have been trained to 

detect errors in the self-reported rents. Centralization

has greatly improved customer service by providing

customers with a single bill for multiple authorizations in 

a timely and efficient manner and by allowing customers 

to provide payment in a single location. This new pilot 

project has allowed the BLM to successfully (1) enhance 

the billing/collections process, (2) improve the timeliness 

and quality of customer service and (3) provide 

consistency in the billing and collections functions. Due 

to this success, the BLM has decided to continue this project in 2012.

2013 PROGRAM PERFORMANCE

In 2013, the BLM will continue to process applications for communications site leases and 

rights-of-way, as well as applications for assignments, amendments, and renewals. The Bureau 

will also continue to emphasize site administration and management. The BLM expects to 

complete 30 final communication site management plans; process 65 actions for lease or grant 

issuances, rejections, amendments, and renewals; process 50 actions for assignments, 

cancellations, relinquishments, and other administrative work; and complete 120 site or facility 

inspections. The BLM will train over 60 agency and industry personnel on the siting and 

The BLM is currently piloting a program to 

centrally bill and collect rents, which will 

improve customer service and allow BLM to 

audit 100% of customer submitted inventory 

worksheets.

Mount Lewis Field Office

Battle Mountain, NV
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 157

administration of communication uses on public land, plus train 75 line managers on their roles 

and responsibilities in the Communication Site Management program.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 158

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Activity: Resource Protection and Maintenance

2013 Change

Fixed Costs & Program from

2011 2012 Related Changes Changes Budget 2012 Enacted

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-)

Resource 

Mgmt. 

Planning $ 42,426 38,060 +322 +4,366 42,748 +4,688

FTE 254 254 0 0 254 0

Abandoned 

Mine Lands 

Mgmt.1$ [15,929] 19,819 +84 -2,000 17,903 +17,903

FTE [74] 74 0 0 74 +74

Resource 

Protection & 

Law 

Enforcement $ 27,686 27,024 +157 0 27,181 +157

FTE 138 138 0 0 138 0

Hazardous 

Materials 

Mgmt. $ 17,028 16,641 +117 0 16,758 +117

FTE 102 102 0 0 102 0

Total Activity $ 87,139 101,544 +596 +2,366 104,590 +22,865

FTE 494 568 0 0 568 +74

1

In 2012, $15.9 million of funding for the Abandoned Mine Lands program was transferred from the Soil, Water, and 

Air Management subactivity to a new Abandoned Mine Lands Management subactivity in the Resource Protection 

and Maintenance activity.

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Resource Protection and Maintenance activity is $104,590,000

and 568 FTE, a net program change of +$2,366,000 and 0 FTE from the 2012 Enacted level.

ACTIVITY DESCRIPTION

In fiscal year 2011, there were three subactivities within the Resource Protection and 

Maintenance activity. In fiscal year 2012, the Bureau of Land Management (BLM) created a 

new subactivity, Abandoned Mine Lands Management, within the Resource Protection and 

Maintenance activity by redirecting funding for this work from the Soil, Water, and Air 

Management subactivity where the program was historically funded. All four subactivities 

contribute to the protection and safety of public land users and environmentally sensitive 

resources.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 160

Resource Management Planning – The land use planning function is based on 

collaboration with local communities and State and tribal governments, as well as on 

science-based analysis.

Abandoned Mine Lands – The remediation of abandoned mine lands supports core 

programs by restoring degraded water quality, cleaning up mine waste that has been 

contaminated by acid mine drainage and heavy metals (such as zinc, lead, arsenic, 

mercury and cadmium), remediating other environmental impacts on or affecting public 

lands, and mitigating physical safety issues.

Resource Protection and Law Enforcement – The resource protection and law 

enforcement subactivity provides for the protection from criminal and other unlawful 

activities on public lands.

Hazardous Materials Management – The hazardous materials program provides for the 

prevention, mitigation, and remediation of the effects of hazardous material releases and 

other dangers on the public lands.

The Resource Protection and Maintenance activity funds land use planning and compliance 

processes, which are required by the National Environmental Policy Act (NEPA) and the 

Federal Land Policy and Management Act (FLPMA).
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 161

Activity: Resource Protection and Maintenance 

Subactivity: Resource Management Planning

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Resource Mgmt. Planning 

($000) 42,426 38,060 +322 +4,366 42,748 +4,688

FTE 254 254 0 0 254 0

Major Program IT Investments:

IT Support for Resources and 

Mineral Land Use Planning 

(ePlanning) 2,986 2,385 0 0 2,385 0

Enterprise Geographic Information 

System (EGIS) 231 310 0 0 310 0

Economic Profile System 100 100 0 0 100 0

Summary of 2013 Program Changes for Resource Management Planning

Request Component ($000) FTE

Program Changes:

• High Priority Planning Efforts +4,366 0

TOTAL, Program Changes +4,366 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Resource Management Planning is $42,748,000 and 254 FTE, a 

program change of +$4,366,000 and 0 FTE from the 2012 enacted level.

High Priority Planning Efforts (+$4,366,000 / 0 FTE) – The BLM is requesting an increase of 

$4,366,000 to support high-priority planning efforts, including the initiation of several new plan 

revisions in 2013, as well as plan evaluations and implementation strategies. Resource 

management plans provide the basis for every BLM management action, and keeping them

current in an era of rapidly changing resource use and demands, changing ecological 

conditions, continued population growth and increasing recreation use on the public lands is a 

high priority.

 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 162

PERFORMANCE CHANGE

RESOURCE MANAGEMENT PLANNING

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife 

refuges, and BLM lands. 

Supporting Bureau Measures

Percent of Resource Management Plan 

evaluations completed within five years. 

(BUR) 

18%

25 / 136

19%

26 / 136

30%

40 / 136

38%

51 / 136

41%

56 / 136

29%

45 / 157

43%

68 / 157 +14% 43%68 / 157

Percent of Resource Management 

Plans with Implementation Strategies. 

(BUR)

16% 

22 / 136

16% 

22 / 136

34% 

47 / 136

44% 

60 / 136

36% 

49 / 136

32%

51 / 157

35%

55 / 157 +3% 35%55 / 157
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 163

PROGRAM OVERVIEW

Resource Management Planning is the foundation of effective public land management. 

Planning and plan implementation decisions describe desired resource conditions on-theground and methods to achieve desired conditions across 248 million acres of BLM-managed 

public lands primarily across 12 western states, including Alaska. The planning process 

encourages collaboration and partnerships which help the BLM determine how to manage 

public lands to balance the needs of adjacent communities with the needs of the nation.

The Planning program uses interdisciplinary analyses to complete a management framework 

and decision-making cycle shown in the following figure.

Land Use Plan Revision and Development – Completion of ongoing RMP development is the 

highest priority of the program. Delaying completion postpones vital resource management 

decisions and increases potential for litigation in planning areas. As RMP decisions are 

recorded, the program initiates new RMPs in areas where changing demands on public land

resources have been identified. 

Sustainable Planning and NEPA Infrastructure – This dynamic approach to land use planning 

cycles through implementation, effectiveness monitoring, and assessment of emerging issues 

such as rapid population growth, and changing resource conditions. The cycle allows plans to 

remain relevant and adaptive by addressing emerging challenges and changing resource issues 

as they arise, which ensures their longevity and reduces the frequency of costly revisions.

Land Use Plan Amendments – Amendments enable the program to address significant new 

information, respond to changing land uses, consider proposals that deviate from the plan, and 

implement new policy that change land use plan decisions. Plan amendments are an 

economical means to reduce the frequency of costly revisions. 

Critical Factors

The BLM addresses a number of critical factors in its land use planning and decision-making 

processes. These include the following:

Land Health Stressors – Land health stressors such as invasive plant and insect infestations, 

drought, and catastrophic wildfires contribute to the loss of native animal and plant communities

and habitat for threatened and endangered species. Changing conditions necessitate the 

reevaluation of plans. Ecoregional assessments and adaptation strategies—mitigating impacts 

of land health stressors—indicate whether land use decisions remain valid or require 

amendment.

Plan Implementation

Plan Assessment,

Inventorying & Monitoring

Plan Evaluation, Maintenance,

& Amendment

Plan Revision / Development
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 164

Energy Demands – Increased demands for renewable and conventional energy affect the 

balance with conflicting requests such as wilderness experience, recreation, off-highway vehicle 

use, and managing the cumulative effects of habitat fragmentation. 

Expanding Populations & Community Growth – These factors challenge wildland fire 

suppression efforts in the wildland/urban interface, contribute to increased conflicts between 

recreational uses, and increase demands for surface-disturbing uses such as roads, utility 

distribution lines, communication sites, sand, gravel, mineral materials sites, and public facilities. 

The understanding of complex socioeconomic issues in communities adjacent to BLMadministered lands is imperative to effective land management.

Protests/Litigation – Public land management conflicts tend to increase litigation over land use 

decisions. Even litigation not directly associated with land use planning frequently affects land 

use decisions, given the broad scope of resource issues considered. Challenges to land use 

decisions have increased at the Interior Board of Land Appeals (IBLA) and judicial courts. 

Quality Collaboration and Involvement of Cooperating Agencies – The BLM collaborates with 

interested members of the public and other governmental agencies—various Federal, State, 

Local, County, and Tribal entities—to take advantage of their technical expertise, to fulfill 

requirements for cooperation under various laws, and to ensure consistent management where 

BLM managed lands border those of other government agencies.

 

Sage-grouse Initiative: In December 2011, the BLM issued a Notice of Intent 

to begin a planning effort to incorporate sage-grouse habitat conservation 

measures into as many as 98 land use plans within 68 planning units in 

California, Oregon, Idaho, Nevada, Utah, Colorado, Wyoming, Montana, North 

Dakota, and South Dakota. Land use plans will incorporate regulatory 

mechanisms through plan amendments, revisions, and supplements. This is a joint effort with 

the U.S. Fish and Wildlife Service, the U.S. Forest Service, and State fish and wildlife 

agencies, and will include many cooperating agencies at the State, local and tribal levels. 

Between 2012 and 2014, the BLM expects to issue up to seven EISs to install regulatory 

mechanisms necessary to help prevent the future listing of the species for protection under 

the Endangered Species Act. The BLM has issued interim management measures until 

updated or revised land use plans are completed, and is incorporating conservation 

measures as part of the planning process. 

IM 2012-043: Greater Sage-Grouse Interim Management Policies and Procedures

http://www.blm.gov/wo/st/en/info/regulations/Instruction_Memos_and_Bulletins/national_instr

uction/2012/IM_2012-043.html

IM 2012-044: BLM National Greater Sage-Grouse Land Use Planning Strategy

http://www.blm.gov/wo/st/en/info/regulations/Instruction_Memos_and_Bulletins/national_instr

uction/2012/IM_2012-044.html

For additional information on the BLM's efforts to maintain and restore sagebrush landscapes 

on public lands, please visit the BLM's new Greater Sage-grouse conservation website:

http://www.blm.gov/wo/st/en/prog/more/sage_grouse_home2.html
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 165

Means and Strategies

The BLM uses a number of means and strategies to support land use planning and decisionmaking processes. These include the following:

ePlanning – The ePlanning web-based application is a landmark improvement to the land use 

planning process. It supports a DOI/BLM strategic goal of creating efficiencies through faster 

and easier public access to NEPA documents for review and commenting, and simplified 

comment analysis and response. 

Assessment, Inventory and Monitoring – The Assessment, Inventory, and Monitoring (AIM) 

Strategy is another important improvement to the BLM‘s strategic decision-making. AIM 

improves monitoring protocols on a landscape scale, and establishes core indicators and data 

standards to increase understanding of landscape conditions and trends. The results should

enable BLM to determine the effectiveness of its management actions and replicate successful 

efforts in areas of similar biophysical settings. 

AIM allows the BLM to integrate data collection and analysis across internal jurisdictions and 

with Federal and non-federal partners. The AIM Strategy enables greater data sharing, enabling 

cumulative effects analysis and predictive modeling. 

AIM is closely aligned with the Cooperative Landscape Conservation and Healthy Landscapes 

initiatives which are making the landscape management approach a reality in the BLM. It 

supports the Enterprise Geographic Information System and the Geospatial Services Strategic 

Plan which improve the management, analysis, and reporting capabilities of resource and 

administrative data. The integrated data monitoring/analysis capability provided by AIM and 

GSSP is paramount to future public land management actions given the landscape-scale nature 

of project proposals such as renewable energy.

Socio-economics – BLM‘s Socio-economic program is a third strategic decision-making 

improvement for BLM. The program helps resource management programs weigh competing 

interests concerning access to public lands and resources. Social and economic conditions are 

changing across the west and the public is demanding a more collaborative style of decisionmaking with reliable information on the human context and consequences of BLM‘s programs. 

The BLM‘s Socioeconomics Program has four workloads contributing to effective resource 

management: 

1. Regularly conducted socioeconomic analyses through NEPA and the Bureau‘s planning 

process, such as social and economic impacts of proposed oil and gas development.

2. Methods and tools to address BLM and DOI initiatives such as assessing the human consequences of 

the effects of climate change.

3. Socioeconomic support for immediate management concerns such as providing 

employment and income data for discussions with county officials. 

4. Program or state-specific socioeconomic priorities such as preparing coal valuations for 

lease sales in Wyoming. 

The need to maximize the BLM‘s return on investment is essential to achieving its mission, and 

thus measuring that return on investment through the application of socio-economic research 

and analytical methods is a key part of BLM‘s management process. 

Appropriate Dispute Resolution – The Appropriate Dispute Resolution (ADR) program in the 

BLM is another method that BLM uses to improve its decision-making processes. Litigation in 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 166

recent years has imposed escalating costs on BLM‘s management of the public lands, and 

strained BLM‘s relationship with the public. The ADR Program seeks to alleviate these costs 

and improve BLM‘s relationship with the public by increasing public buy-in to BLM‘s 

management processes and by making BLM‘s land management decision-making process 

more transparent.

Funding History and Other Funding Sources

A BLM report to Congress in 2000 titled Land Use Planning for Sustainable Resource 

Decisions, outlined the state of its planning program. At the time most of the BLM‘s land use 

plans were losing relevance given the changes in the West since they had been written. Of 

particular concern was that out-of-date management plans would compromise the BLM‘s ability 

to make timely and informed land use decisions inherent in its multiple-use mission. 

To address the concerns, the BLM improved the quality and effectiveness of resource 

management by revising its land use plans. The majority of program funding over the past eight 

years has funded plan development and revision projects. As a large number of plan 

development projects were completed, the BLM began shifting funding to support base planning 

and NEPA workloads comprising the ―sustainable‖ side of the land use planning cycle. This 

strategic shift protects the large investments that were made updating the land use plans by 

focusing on each step of the dynamic land use planning cycle.

2013 PROGRAM PERFORMANCE

Land Use Plan Revisions – In 2013, the Resource Management Planning program will continue 

revisions on the 50 to 53 plans that are in process. This estimate takes into consideration plans 

that will be completed in the interim. Active plan revisions are evaluated annually to determine 

progress and estimated costs for completion. Approvals to extend project schedules are 

36.5%

29.6%

22.3% 24.0% 23.8% 27.9%

34.3% 37.2% 41.8% 42.4%

49.0% 49.0% 45.0%

63.5%

70.4%

77.7% 76.0% 76.4% 72.1%

65.7% 62.8% 58.1% 57.6%

51.0% 51.0% 55.0%

0.0%

20.0%

40.0%

60.0%

80.0%

100.0%

120.0%

2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 Dollars (in %)

Resource Management Planning Funding History - Incremental Funding Shift to Support Base Planning and NEPA Workload

Land Use Plan Development and Revision (one-time) Base Planning and NEPA Workload (base)
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 167

coordinated through the Assistant Director for Renewable Resources and Planning. 

In 2012, the BLM initiated one new RMP revision for San Pedro, AZ. In 2013, the BLM plans to 

initiate between 7 and 10 new RMP revisions. Between one and four new RMP revisions will be 

funded by the MLR Resource Management Planning program. The remaining six Western 

Oregon RMP revisions will be funded by the O&C Resource Management Planning program. 

Since 2001, the BLM has:

completed 67 plan revisions to improve the quality and effectiveness of its resource 

management,, 

48 planning projects are in progress, and 

44 plans are in need of revision or amendment to meet changing resource demands and 

conditions.

Land Use Plan Amendments – Newly revised plans are maintained through amendments

funded by benefitting programs. Targeted amendments address emerging challenges and 

changing resource issues, extend the useful life of a plan, and reduce the potential for litigation. 

In 2013, the BLM will use $10.0 million of the $15.0 million increase requested in the Wildlife 

Management program to fund land use plan amendments within 68 planning units in California, 

Oregon, Idaho, Nevada, Utah, Colorado, Wyoming, Montana, North Dakota, and South Dakota

to incorporate sage-grouse habitat conservation measures.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 168
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 169

Performance Overview

RESOURCE MANAGEMENT PLANNING

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife 

refuges, and BLM lands. 

Supporting Bureau Measures

Percent of Resource Management 

Plans completed within four years of 

start. (BUR)

49% 

29/ 59

44% 

28 / 63

39% 

28/ 71

51% 

35/ 69

41% 

28/ 69

48% 

36/ 75

46% 

43/93 -2% 46% 43/93

Comment: The ratio represents the total number of Resource Management Plans (RMPs) completed in four years divided by the total number of RMPs completed, so the 

denominator increases over time. The denominator decreased from 2010 to 2011, a result of subtracting two completed RMPs due to litigation.

Percent of Resource Management Plan 

evaluations completed within five years. 

(BUR) 

18%

25/ 136

19%

26/ 136

30%

40/ 136

38%

51/ 136

41%

56/ 136

29%

45/ 157

43%

68/ 157 +14% 43%68/ 157

Percent of Resource Management 

Plans with Implementation Strategies. 

(BUR)

16% 

22/ 136

16% 

22/ 136

34% 

47/ 136

44% 

60/ 136

36% 

49/ 136

32%

51/157

35%

55/157 +3% 35%55/157

Percent of Resource Management 

Plans evaluated as making significant 

progress toward achieving riparian 

condition goals. (BUR)

New 

Measure 

in 2010

New 

Measure 

in 2010

5.9% 

8 / 136

18% 

24/136

18% 

24/136

20% 

32/157

36% 

56/157 +16% 36% 56/157
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 170

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Activity: Resource Protection and Maintenance

Subactivity: Abandoned Mine Lands

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Abandoned Mine Lands ($000) [15,929] 19,819 +84 -2,000 17,903 -1,916

FTE [74] 74 +0 74 +0

Major Program IT Investments:

Protection and Response Information 

System (PRIS) 97 95 +0 +0 95 +0

Summary of 2013 Program Changes for Abandoned Mine Lands Management

Request Component ($000) FTE

Program Changes:

• General Program Decrease -2,000 0

TOTAL, Program Changes -2,000 0

*In 2012, $15.9 million of funding for the Abandoned Mine Lands program was transferred from the Soil, Water, and 

Air Management subactivity to a new subactivity in the Resource Protection and Maintenance activity.

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Abandoned Mine Lands (AML) program is $17,903,000, a 

program change of -$2,000,000 and 0 FTE from the 2012 Enacted level. 

General Program Decrease (-$2,000,000) – In 2013, the BLM is requesting a decrease of $2.0 

million. BLM will continue to fund the highest priority sites, as defined through its ranking 

process. In FY 2013, Red Devil Mine (AK) reclamation activities will remain a high priority. 

BLM plans to execute the next steps in the Comprehensive Environmental Response 

Compensation and Liability Act (CERCLA) process, address terrestrial biota data gaps in the 

Remedial Investigation (RI) and associated fish tissue study, establish baseline data, survey 

the site boundaries, address future land use issues and continue community outreach. The 

estimated costs for these tasks are listed in the table below:

Red Devil Remediation Funding Plan

Conduct the next steps in the CERCLA process, as detailed in the 

Proposed Plan and Record of Decision

$700,000

Address terrestrial biota RI data gaps $300,000

Baseline surface water and groundwater monitoring $150,000

Additional fish tissue sampling and analysis $500,000

Cadastral survey of site boundaries $50,000

Address future land use $50,000

Community Outreach $250,000

Total $2,000,000
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-172

Legislative Change

Reclamation Fee – The 2013 budget proposes to address abandoned hardrock mines across 

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

responsible for abandoned coal sites, the Administration proposes to hold the hardrock mining 

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

fee on all uranium and metallic mines on both public and private lands. The proposed fee will 

be charged per volume of material displaced after January 1, 2013. The receipts will be 

distributed by BLM through a competitive grant program to restore the most hazardous hardrock 

AML sites on both public and private lands using an advisory council comprised of 

representatives from Federal agencies, States, Tribes, and nongovernment organizations. The 

advisory council will recommend objective criteria to rank AML projects to allocate funds for 

remediation to the sites with the most urgent environmental and safety hazards. The proposed 

hardrock AML fee and reclamation program would operate in parallel to the coal AML 

reclamation program as part of a larger effort to ensure the Nation‘s most dangerous 

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

problems.

More information on these proposals, including information on instituting a leasing process 

under the Mineral Leasing Act on new claims for certain minerals can be found in the General 

Statement.

PROGRAM OVERVIEW

The BLM maintains an inventory of known abandoned mines located on the public lands 

managed by the BLM. Most of the sites are abandoned hard rock mines. While there has never 

been a comprehensive field inventory conducted of all 

abandoned mines, the BLM is currently reviewing and 

updating available data. 

According to BLM‘s inventory data as of November, 

2011, there are close to 75,000 features (such as 

open physical hazards and piles of contaminated 

material) associated with 34,000 sites. Much of the 

inventory data comprises legacy records that are often 

incomplete. BLM is updating its national AML 

inventory database continuously as new sites are 

discovered and further inventories are completed. 

While it is important to continue to characterize all 

sites, and add additional sites to the inventory, the BLM believes the greatest need is on-theground work for those high-priority sites already identified. It is also important to emphasize that 

most of the sites with the highest potential for harm to public health and safety have already 

been identified by the various Federal, State, and Tribal partners and are being addressed in 

priority order.

The AML prioritization process for environmental AML sites is directed at AML sites that impact 

water quality on a watershed scale and physical safety hazards to protect the public. The 

Water filled open shaft located along a high 

use 4 wheel drive road in San Juan County, 

Colorado.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-173

contaminants released from AML sites are associated with the extraction of and production of 

heavy metals from past mining activities. The AML prioritization process focuses on several 

criteria: water quality; partnerships; cost avoidance/cost recovery; impairment of water quality 

standards; water quality violations; threat to public health or safety; threat to the environment; 

continuing/expediting an existing on-the-ground project; location; and cost efficiency. Table 1 

below shows the criteria used for Environmental AML sites. Table 2 below shows the criteria for 

ranking physical safety hazards. All projects are scored, then ranked according to score, 

regardless of whether or not the project is an environmental or physical safety hazard site.

Table 1

AML Environmental Hazard Criteria Highest Possible Score

SECTION I: HUMAN AND ECOLOGICAL RISK

Human Presence: 10

Environment 10

Relative Toxicity of Contaminants 10

Impacted Media (Soil, Sediment, Surface Water, Groundwater, 

Air 5

Location of Site Relative to Surface Water 10

Aquifer Characteristics 10

Soils / Sediment Characteristics 10

Current Site Risks Are best Described As: 10

SECTION II: REGULATORY FACTORS DRIVING NEED FOR 

SITE FUNDING

Site Regulatory Violations are Best Described as: 3

Site CERCLA Response Role 2

SECTION III: LEVEL OF POTENTIAL RESPONSIBLE PARTY 

(PRP) INVOLVEMENT

Is/has BLM actively pursuing enforcement against PRPs at the 

site pursuant to its delegated authority? 2

Have funds been recovered for past and/or future DOI response 

costs? 3

SECTION IV: PARTNERSHIPS

Watershed Approach 5

Federal and State Partners 5

Land Status 5

Total Points available 100
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Chapter VIII – Management of Lands and Resources Page VIII-174

Table 2

Physical Safety Hazard Site Criteria 

Highest possible 

score

LAND STATUS/OWNERSHIP - scores from 0 to 10 depending 

on private vs public land ownership status. 1 to 10

VISITATION AND ACCESSABILITY – scores from 0 to 10 

depending on accessibility to visitors and number of visitors. 1 to 10

RISK – scores from 2 to 8 depending on various risk factors 2 to 8

PARTNERSHIPS – scores from 1 to 10 depending on amount of 

cost share available. 1 to 10

In order to reach 100 points, the following formula is used:

Visitation and Accessibility score is multiplied by the risk score. That number (VR) is then 

added to the Partnerships score and the Land status score. This gives a project up to 100 

points. 

(Visitation and Accessibility) X (Risk)=(VR) + (Partnerships) + (Land Status) = total score.

These projects and the environmental projects are then ranked based on the number of 

points scored.

The Hazardous Materials Management program differs from the AML program in that the 

Hazmat program funds emergency response actions to spills, illegal dumping, unexploded 

ordinance, petroleum and chemical spills, and releases that may occur at a variety of site types, 

but which may include mine sites.

The Department‘s Central Hazardous Materials Fund (CHF) is specifically for funding CERCLA 

projects, for all bureaus in the Department. Some include very large scale and environmentally 

complicated abandoned mine sites that cannot be completed by the BLM‘s AML program alone. 

Many of these sites are multi-million dollar clean up actions. The Abandoned Mine Lands 

program also partners with other BLM programs and other Federal Agencies that contribute to 

activities addressed by AML.

Water Quality

Many abandoned mines produce contaminants that degrade water quality at a watershed level. 

Many of the watersheds impacted by past mining activities are located in the arid West where 

the need to improve water quality for human and aquatic resource use is critical.

Physical Safety Hazards

The majority of sites in the database contain physical hazards, such as open mine shafts and 

pits; unstable rock and decayed support beams; and explosive and toxic chemicals. Addressing 

these abandoned mine features that pose a physical safety hazard risk to humans and wildlife is 

a high priority for BLM and continues to be a focus of the AML program. Temporary mitigation 

(fencing and signage), biological and archeological clearances, and the closure of or the 

installation of controlled access barriers are our most common activities. The criteria for physical 

safety hazard rankings are described above. 
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Chapter VIII – Management of Lands and Resources Page VIII-175

Environmental Health

Five to ten percent of the sites in the inventory pose environmental hazards. AML 

environmental sites can include those adversely affected by poor water quality and by 

substances such as arsenic, mercury, and base metals. AML environmental sites include 

tunnels that may discharge contaminated water, or tailing piles that may discharge various 

hazardous materials or substances.

The BLM environmental cleanup or remediation activities cover a broad spectrum, and are 

guided by public laws such as: CERCLA, the Clean Water Act (CWA), the Federal Land Policy 

and Management Act (FLPMA), and the National Environmental Policy Act (NEPA). Through 

the application of those laws, the agency addresses the impacts from the associated hazards 

along with the proposed mitigation work necessary to remediate a site.

Radioactive exposure at abandoned uranium mines (AUM) poses an environmental health 

hazard, and its remediation is a priority for the AML program. Abandoned uranium mines are 

most prevalent in New Mexico, Arizona and Utah. The BLM works with other Federal and State 

partners on the AUM issue. For example, the Grants Mineral Belt Working Group in New Mexico 

has commenced plans for multi-ownership AUM remediation.

Partnerships

The AML program partners with other Federal, State, local, and Tribal AML agencies to close 

hundreds of abandoned shafts and audits, inventory thousands of mine sites, and remediate 

environmental contaminants from abandoned mine sites. BLM‘s partnerships encourage the 

leveraging of dollars with various partners. BLM has established assistance agreements with 

abandoned mine land state programs, including Arizona, California, Colorado, Idaho, Montana, 

Nevada, New Mexico, Utah, and Wyoming. In Nevada and Arizona, the BLM has partnered 

effectively with the U.S. Army Corps of Engineers (ACOE) on several projects. Bat 

Conservation International (BCI) is an extremely valuable partner for BLM who provides 

assistance to BLM in determining if abandoned mines are providing bat habitat and helping to 

preserve that habitat through bat friendly closure techniques. 

Strategic Plan

The AML National Strategic Plan ensures that the BLM meets its planning targets under the 

DOI‘s and the BLM‘s strategic and annual work plans. BLM is currently revising the AML 

National Strategic plan. BLM has developed and implemented a new prioritization process 

(shown in Tables 1 and 2) and multi-year work plans that are in partnership with other Federal 

Physical Safety Hazard Challenges

Accessibility and the proximity of the public to abandoned mine sites continue to present a 

challenge to the BLM. In 2010, there were two accidents resulting in long term injuries, and 

in 2011 one fatality occurred on BLM lands. The BLM closed 1,426 physical safety hazards 

in 2010 and 906 were addressed in 2011, using both ARRA and AML funds. The inventory 

of abandoned mine sites and the physical safety hazards and mitigation of these sites 

continues to be one of the BLM‘s priorities. BLM places priority on closure of hazards near 

population centers and recreational areas and trails.
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Chapter VIII – Management of Lands and Resources Page VIII-176

and state partners. These work plans identify priority 

watersheds and high impact areas where field work 

will be conducted. BLM reviews the AML National 

Strategic plan each year and adjusts the work plan if 

necessary.

The AML program‘s strategic objectives are to:

Protect and restore the Nation‘s watersheds 

impacted by abandoned mines through a riskbased, watershed approach that uses 

partnerships to effectively leverage funding 

and facilitate projects.

Protect public safety and reduce liabilities by 

eliminating or reducing risks posed by abandoned mines.

Reduce environmental degradation caused by abandoned mines to ensure compliance 

with all applicable soil, water and air quality standards, and applicable Federal, State, 

Tribal, and local laws.

Inventory, validate, and prioritize abandoned mine sites based on risk and maintenance 

of functioning ecosystems.

Apply the ―polluter pays‖ principle to achieve cost avoidance/cost recovery for funding 

AML projects wherever possible.

Reclaim abandoned mine lands to productive uses including, but not limited to, 

recreation, fish and wildlife habitat, and preservation of historical/cultural resources.

Critical Factors

Critical factors which impact the effectiveness of the AML program include:

AML restoration projects can be highly complex in environmental scope and impact. 

Environmental analysis and engineering studies are conducted to determine the extent 

of contamination and restoration strategies. Typically, these sites require a multipleyear/phased approach to complete the project.

Performance can be impacted by the complexity of site conditions, need for additional 

engineering studies, and changes in site conditions due to excessive precipitation or 

erosion.

BLM also performs monitoring and maintenance of restored sites. For example, even 

passive water treatment systems require periodic maintenance and adjustments.

2013 PROGRAM PERFORMANCE

In 2013, BLM anticipates funding approximately 1,200 acres of improved water quality and 

1,088 physical safety hazard closures; an increase from fiscal year 2010. The BLM also 

anticipates inventorying 2,000 new AML features, continuing field validation of the AML 

inventory, and continuing extensive coordination with partners.

Abandoned gold mine in Southwestern 

Colorado
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Chapter VIII – Management of Lands and Resources Page VIII-177

Performance Overview

ABANDONED MINE LANDS

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife refuges, 

and BLM lands. 

Supporting Bureau Measures

Percent of sites (acres) reclaimed or 

mitigated from the effects of 

degradation from past mining. (BUR)

26%

996/ 3,831

58%

2,239/ 3,831

71% 

2,718/ 

3,831

59% 

5,439/

9,262

32% 

 3,046/ 

9,262

46% 

4,246/ 9,262

46% 

5,446/ 

11,747

0%

23% 

8,570/ 

37,801
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Activity: Resource Protection and Maintenance

Subactivity: Resource Protection and Law 

Enforcement

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Resource Protection & Law 

Enforcement ($000) 27,686 27,024 +157 0 27,181 +157

FTE 138 138 0 0 138 0

Major Program IT 

Investments:

Incident Management, 

Analysis and Reporting 

System (IMARS) 642 341 0 -38 302 -38

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Resource Protection and Law Enforcement program is 

$27,181,000, and 138 FTE.

PROGRAM OVERVIEW

Program Components

The Resource Protection and Law Enforcement subactivity is responsible for implementing the 

law enforcement and resource protection aspects of the BLM‘s mission of sustaining the health, 

diversity, and productivity of the public lands for the use and enjoyment of present and future 

generations. Protection is achieved through the enforcement of all Federal laws and regulations 

related to the use, management, and development of the public lands and resources. The 

objectives of the subactivity are to ensure that:

Illegal activities are detected, reported, investigated, and resolved or referred to 

appropriate officials;

Lands and waters are free from illegal dumping and pollution;

Revenues owed to the government for authorized or unauthorized uses are collected;

Unauthorized use is prevented or deterred through detection, investigation, and 

resolution; and

Public land users and employees can operate in a safe environment.

The Resource Protection and Law Enforcement Program achieves these objectives and 

other performance goals by:
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Chapter VIII – Management of Lands and Resources Page VIII - 180

Maximizing on the ground presence of law enforcement rangers to deter, detect, 

enforce, and investigate incidents of criminal activity related to the public lands and 

resources.

Continuing to detail law enforcement rangers for a minimum of 14-days under the 

National Detail Program for special events or high-use recreation areas when the 

capacity to manage events or activities exceeds the law enforcement resources of the 

local office.

Maximizing the use of interagency agreements, partnerships, and task forces.

Establishing service contracts with state and local law enforcement agencies such as the 

County Sheriff to provide additional law enforcement services such as dispatch support, 

patrol in campgrounds or high-use recreation areas, and assistance in the eradication of 

marijuana grown on public lands.

Using electronic technology such as cameras, sensors, and tracking devices wherever 

possible to expand the capability for monitoring locations with known illegal activities.

Critical Factors

Critical factors impacting the Resource Protection and Law Enforcement Program include:

Large scale marijuana cultivation on public lands and the associated adverse impacts to 

public land resources continues to present significant challenges for BLM. Cultivation 

activities present danger to visitors and employees who work on these public lands. 

Environmental impacts include the extensive use of fertilizers, herbicides, and 

pesticides, trash, human waste from occupants, and the illegal taking of wildlife and 

game species by individuals tending grow sites. 

The remote and isolated public lands near the Southwest Border with Mexico serve as 

major thoroughfares for smuggling humans and controlled substances into the United 

States. These illegal activities threaten the safety of the public, agency employees, 

volunteers and contractors, and destroy the natural and cultural resources on these 

public lands.

The unpredictable nature of other types and volume of criminal activity.

Population increases in several major urban areas within one hour‘s drive of public lands 

have corresponded with increases in certain activities such as increased off-highway 

vehicle use, illegal dumping of household and commercial waste, theft of mineral 

materials and native plants for private landscaping, and the start of wildland fires.

Unplanned work, such as emergencies requiring a law enforcement response.

Increased number of requests from partner law enforcement agencies for assistance 

through service contracts or assistance agreements, particularly in counties heavily 

impacted by marijuana cultivation activities in northern California.

Demands, Trends and Resources

Major program issues include marijuana cultivation on public lands, off-highway vehicle use, 

wildland fire investigations and the theft, vandalism and misuse of public land resources.

In the area of marijuana cultivation on public lands, in 2011 the BLM saw the second 

consecutive decrease in the number of marijuana plants seized on public lands. The decrease 

in cultivation activities occurred in California, Oregon, and Idaho, while increases in large scale 

cultivation activity occurred in southern Nevada and Utah.
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Marijuana Cultivation Activity on Public Lands

No. of Plants Seized by 

BLM on Public Lands

FY 2007 FY 2008 FY 2009 FY 2010 FY 2011

457,412 408,479 674, 935 593,832 436,455

Because of the size of the marijuana cultivation problem and the large number of Federal, State, 

and local agencies involved in combatting the problem, it is difficult establish a direct cause and 

effect relationship, however several factors believed to be having an effect on large scale 

cultivation on public lands, including:

The investigation and eradication efforts of multi-agency/multi-jurisdiction operations 

involving the BLM, U.S. Forest Service, and various State and local law enforcement 

agencies have impacted the capabilities of the drug trafficking organizations above the 

grower level due to arrests of individuals higher up in the organizations, disruption of 

grower supply activities, and dismantling of infrastructure that supports the cultivation 

activities. One example of this type of operation was ―Full Court Press‖. This multiagency operation in 2011 focused on a six-county area in northern California that 

included BLM-managed public lands in the Arcata and Ukiah Field Offices in Humboldt 

and Mendocino counties. The increased public awareness of marijuana cultivation 

activities associated with this type of operations is also believed to have a deterrence 

affect.

Successful prosecution of several individuals involving multi-state organized growing 

operations have disrupted the organizational structure and reduced the cultivation 

capability, particularly in southwest Idaho and eastern Oregon.

Cooler and wetter than normal spring weather patterns in northern California and 

western Oregon reduced the traditional growing season in both 2010 and 2011.

Exploitation of loop holes in medical marijuana laws in California have resulted in an 

increase in large scale ―legal‖ marijuana cultivation on private lands, particularly in 

central valley areas. Large amounts of marijuana grown under this scenario are being 

sold outside the ―legal‖ trade, likely resulting in a reduction in the need to grow marijuana 

on federal lands where it remains illegal to cultivate.

Cultivation activity is continues to increase in Nevada, and southern Utah, however the 

cultivation activity is not on the same rate or scale as even current rates in California and 

Nevada, primarily due to the lack of water.

Other law enforcement statistics are shown below.

Wildland Fire Activity on Public Lands

No. of 

Fire 

Related 

Incidents

FY 2009 FY 2010 FY 2011

694 831 698
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 182

2013 PROGRAM PERFORMANCE

Every effort will be made in FY 2013 by the Resource Protection and Law Enforcement Program 

to sustain its priority focus areas and accomplish the following listed functions.

Marijuana Cultivation on Public Lands – BLM plans to continue drug enforcement 

activities at the same level as 2012. This includes twenty Special Agent positions 

assigned full time to combatting marijuana cultivation activities in California and Oregon. 

Additional agents in Utah, Nevada will continue to work on a part time basis to 

investigate an increasing number of large scale marijuana cultivation activities in those 

States. Additionally, BLM Rangers assigned to California and Oregon will continue 

provide high profile patrol to deter and detect cultivation activities, eradicate marijuana 

gardens, and provide security for clean-up crews during the summer months. BLM will 

continue working with the Public Lands Drug Coordination Committee, under the 

auspices of the Office of National Drug Control Policy, to develop a science based 

method to identify the environmental impacts of marijuana cultivation on the public lands 

and to establish and associated cost model. The model will include hazardous and non -

hazardous material; water displacement, usage, and pollution impacts, and surface area 

disturbance. When completed this model will allow for better estimates and tracking of 

the costs of the environmental impacts of marijuana cultivation. 

ARPA Enforcement in the Four Corners Region – BLM will continue to patrol and 

conduct investigations in the Four Corners Region to deter and detect incidents involving 

theft and vandalism of cultural, historical, and paleontological resources. BLM will 

prosecute suspects and provide for the proper curation, storage, and disposition of 

recovered artifacts. 

Off-Highway Vehicle (OHV) Activity on Public Lands

FY 2009 FY 2010 FY 2011

OHV 

Incidents

Total 

Incidents

OHV 

Incidents

Total 

Incidents

OHV 

Incidents

Total 

Incidents

8,455 26,461 8,147 30,935 6,427 26,888

Total incidents is the total number of law enforcement incidents reported.

Theft, Vandalism, and Misuse of Resources

FY 2009 FY 2010 FY 2011

Cultural, Paleontological & 

Historical Resources 85 118 72

Minerals 15 15 10

Natural Features & Other 

Wildland Resources 143 100 107

Timber, Forest Products, & 

Native Plant Species 165 202 190

Wild Horse and Burro 79 92 86
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 183

Cerberus Action 

The BLM, in cooperation with the Federal Bureau of Investigation, continues to pursue a 

long-term investigation (code named  ̳Cerberus Action‘) in the Four Corners Region. This 

investigation is targeting individuals suspected of looting archaeological sites and Native 

American graves in violation of the Archaeological Resource Protection Act (ARPA) and 

the Native American Graves Protection and Repatriation Act (NAGPRA). To date, this 

investigation has resulted in 28 Federal convictions on 105 Felony Counts, and led to the 

recovery of hundreds of thousands of archaeological and Native American artifacts.

Southwest Borderlands – BLM will continue to patrol and conduct other law enforcement 

activities in areas near the Southwest Border to respond to the heavy resource impacts 

and public safety issues due to illegal smuggling activities on public lands within 100-

miles of the Southwest Border. 

Trash resulting from human smuggling activities on the Sonoran Desert National Monument 

in AZ. The trash was located and cleaned up by the BLM as part of Operation ROAM.
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Chapter VIII – Management of Lands and Resources Page VIII - 184

Operation Reclaim Our Arizona Monuments (ROAM)

Operation ROAM was originally chartered in FY 2010 to respond to both increased and ongoing illegal border related impacts to the Ironwood Forest National Monument and the 

Sonoran Desert National Monument. The intent of ROAM is to integrate BLM law enforcement 

and resource specialists to improve public safety and remedy resource related impacts 

affecting Arizona‘s National Monuments through clean-up and restoration projects, and 

disruption/deterrence of smuggling operations along the southwest border. Resource damage 

to these national monuments results from human and drug smuggling activities occurring on 

these lands. Unauthorized roads and trails, large accumulations of trash, concentrations of 

human waste, and damage to fences, vegetation and other infrastructure occur regularly in 

these areas. 

National Landscape Conservation System (NLCS) – BLM will continue to patrol and 

conduct other law enforcement activities in the NLCS areas to protect nationally 

significant resources and provide safe and enjoyable visits to the public lands.

Off-Highway Vehicle (OHV) Recreation – BLM will continue assigning law enforcement 

resources to patrol high-use OHV areas to provide for safe recreational activities and 

enjoyable visits to the public lands. 

Resource Damage, Loss and Theft – BLM will continue to emphasize patrol, 

enforcement, and investigation to reduce the amount of theft on public land resources, 

including mineral materials, oil and gas, timber and forest products. 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, as well 

as improve production accountability and reduce theft of oil and gas resources.

Wild Horses and Burros – BLM will continue to enforce laws and investigate violations 

related to wild horses and burros, which includes harassment, unlawful removal, 

unauthorized destruction or sales, inhumane treatment, and violations of the Private 

Maintenance and Care Agreement.

Use of Cost and Performance Information – In the 2011 GAO Report Adopting a Formal, 

Risk-Based Approach Could Help Land Management Agencies Better Manage Their Law 

Enforcement Resources (GAO-11-144), the GAO recommended that BLM adopt a risk 

management approach to systematically assess and address threats and vulnerabilities 

presented by illegal activities on federal lands to help identify the law enforcement 

resources needed and how to distribute these resources effectively. In response to this 

recommendation BLM has developed an integrated risk rating tool that incorporates 

performance information in assessing risks to various categories of BLM managed 

resources. In FY12, BLM expects to integrate the results of the risk assessment into 

planning and prioritizing law enforcement activities. Field Office law enforcement plans will 

be updated using the risk assessment data by the end of FY12. 
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Chapter VIII – Management of Lands and Resources Page VIII - 185

Performance Overview

RESOURCE PROTECTION AND LAW ENFORCEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife refuges, 

and BLM lands. 

Supporting Bureau Measures

Number of incidents/investigations 

closed for natural, cultural, and 

heritage resources offenses.(BUR)

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

4,744 4,700 4,700 0

Baseline 

Established

Number of natural, cultural, and 

heritage resource crimes detected 

that occur on BLM lands.(BUR)

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

9,438 9,400 9,400 0

Baseline 

Established

Comment: The unpredictable nature of the type, location, and volume of criminal activity is a critical factor that may result in significantly higher or lower actual performance than 

predicted. Beginning in 2008, law enforcement performance elements are broken out to show Law Enforcement program targets separate from other contributing program targets. All 

law enforcement activities will continue to be recorded in the LAWNET automated system. The main contributors under ―All Other Programs‖ are: Wild Horse & Burro, Recreation 

Resources Management, Land and Realty Management, Wilderness Management, Wildlife Management, Cultural Resources, Hazardous Materials Management, and Rangeland 

Management.
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Activity: Resource Protection and Maintenance

Subactivity: Hazardous Materials Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Hazardous Materials ($000) 17,028 16,641 +117 0 16,758 +117

FTE 102 102 0 0 102 0

Other Major Resources:

Transfer: Central Haz. Mat. Fund 

(26xx) 5,127 4,673 0 TBD TBD TBD

Transfer: Nat. Res. Damage Assess 

(9210/60) 414 325 0 TBD TBD TBD

Major Program IT Investments:

Protection and Response 

Information System (PRIS) 42 43 0 0 43 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 request for the Hazardous Materials Management program is $16,758,000, and 102 

FTE. 

PROGRAM OVERVIEW

The Bureau of Land Management‘s (BLM) Hazardous Materials Management Program is 

responsible for the following compliance activities:

Minimizing environmental contamination on public lands.

Reducing and eliminating risk associated with environmental hazards.

Restoring natural and cultural resources adversely impacted by oil discharges and 

hazardous substance releases. 

Correcting environmental compliance problems in a timely fashion.

Identifying and managing significant environmental aspects of the BLM‘s operations.

Reducing the generation of wastes or contaminants at the source, and thereby reducing 

releases to the environment that could pose hazards to public health or the environment.

Partnering with the Law Enforcement program to remove illegally dumped material such 

as trash, hazardous materials, and abandoned vehicles.

The Hazardous Materials Management program differs from the Abandoned Mine Lands (AML) 

program because hard rock mining requires various types of equipment and chemicals for 

mineral extraction and processing. Many AML sites contain hazardous materials as well as 

hazards other than AML-related physical safety hazards. Although the BLM has historically 
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Chapter VIII – Management of Lands and Resources Page VIII - 188

leveraged both AML and Hazardous Materials Management program funding to address 

environmental hazards, many hazardous material cleanups are specific to the Hazardous 

Materials Management Program. Examples of these cleanup projects include: petroleum spills, 

underground chemical storage tanks, polychlorinated biphenyls (PCBs), and other hazardous 

substances abandoned at ore processing plants. 

Critical factors that impact BLM’s capability to protect public health and safety include:

The need to continue supporting maintenance and monitoring demands at previously 

remediated sites while continuing to address cleanups at current and future sites on 

BLM managed land. 

BLM has noted increased illegal dumping on BLM lands adjacent to areas with growing 

populations.

Means and Strategies

The BLM uses the following strategies in operating the Hazardous Materials Management 

program:

Developing, implementing, and maintaining emergency response (i.e., oil and chemical 

spill) contingency planning;

Leveraging funding to respond to community needs and concerns;

Assessing and maintaining BLM facilities to ensure compliance with environmental laws 

and regulations;

Searching for parties responsible for contamination on public lands and either seeking 

their participation in remediating the site or recovering costs;

Partnering with other environmental protection-related agencies such as the Fish and 

Wildlife Service, Environmental Protection Agency, Army Corps of Engineers, and the 

U.S. Forest Service, as well as partnering with several BLM programs: Abandoned Mine 

Lands Program, Law Enforcement Program, and the Recreation Program. 

Tracking and prioritizing sites using the Abandoned Mine Site Cleanup Module 

(AMSCM) data base. Prioritization is based on risk to human health, natural resources, 

and the environment. 

Other Funding Sources: 

In addition to the Hazardous Materials Management program funding, the BLM utilizes, in the 

appropriate circumstances, funding from the Department‘s Natural Resource Damage 

Assessment, Restoration Fund, and the Department‘s Central Hazardous Materials Fund. . 

Central Hazardous Materials Fund Managed by the Department of the Interior

The BLM has access to the Department‘s Central Hazardous Materials Fund. This appropriation includes funding 

to conduct response actions, remedial investigations and feasibility studies, and cleanups at sites where a release 

has occurred of hazardous substances (as defined in the Comprehensive Environmental Response, 

Compensation, and Liability Act), for which the Department is the lead agency. Established in 1995, this fund: 

provides a central account for remedial investigation and feasibility studies and cleanup for hazardous materials 

sites; brings greater consistency, direction and coordination; pursues cost recovery action from potential 

responsible parties; and provides ―no-year‖ funding, important for these multi-year projects. Currently, the BLM 

manages 18 Central Hazardous Materials Fund sites. Central Hazmat Fund Sites are prioritized based on human 

health and ecological risk, regulatory factors and level of Principle Responsible Party involvement. Proposals are 

reviewed and prioritized first by BLM State Office representatives through a yearly nomination processes and then 

by Departmental representatives. In 2012, the Central Hazardous Materials Fund program allocated $4.7 million to 

BLM sites. These sites are managed separately from the Hazardous Materials Management Program and funding 

is separate from the Hazardous Materials Management Program.
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BLM Assistance with Gulf Oil Spill

The BLM sent several personnel to assist National Incident Command during the initial Deepwater Horizon oil spill response, 

and continues to support the Natural Resource Damage Act (NRDA) case management activities via a liaison position. 

Long Term Vision

The long-term vision for the program is to protect human health and the environment by 

focusing on the following:

Improving accountability by creating effective ways to monitor and track contaminated 

sites.

Establishing innovative methods to prevent, as well as reduce, illegal dumping on public 

lands.

Developing Environmental Management Systems (EMS) at all appropriate organizational 

levels.

Promoting environmentally sustainable operations including, but not limited to, pollution 

prevention, recycling, and environmentally preferable purchasing and contracting;

Auditing sites and facilities to ensure compliance.

Developing internal and external partnerships to jointly provide effective solutions to 

environmental issues on BLM public lands.

Improving the BLM‘s response capability to oil discharges and hazardous releases along 

coastal areas in order to protect endangered species and associated habitats with base 

funding, through training and updating contingency plans.

2013 PROGRAM PERFORMANCE

The Hazardous Materials Management Program will continue to do the following activities in 

fiscal year 2013:

Complex Contaminated Sites Cleanups – The BLM plans to leverage funding to address 

cleanups at large complex hazardous waste sites that pose an imminent risk to the public. 

Illegal Dumping Prevention – The BLM plans to continue its prevention effort by targeting 

cleanups, outreach, and monitoring on BLM lands to ensure human safety and to mitigate 

environmental damage.
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Chapter VIII – Management of Lands and Resources Page VIII - 190

Environmental Management System (EMS) –

BLM plans to have complete EMS 

implementation at all States, Centers and four 

organizational units. 

Environmental Compliance – Continue to 

support, with the Engineering and Safety 

Programs, the performance of Compliance 

Assessment – Safety, Health, and the 

Environment (CASHE) audits. In 2013, CASHE 

audits will be performed at twenty-eight 

organizational units. 

Emergency Response – BLM will continue to 

respond to and cleanup oil spills and 

hazardous substances released into the environment.

Energy and Water Use The BLM will continue to develop policy and program activities for 

improving energy efficiency, renewable energy, and water conservation and reducing 

greenhouse gas emissions. This will be accomplished through the BLM‘s Energy 

Management Information System (EMIS). The EMIS will track the BLM‘s energy and water 

usage, compare it to historical consumption, determine Energy Star ratings for the BLM‘s 

100 largest facilities, rank most and lease efficiency offices in regards to their energy usage 

per square foot, calculate greenhouse emissions related to the BLM‘s energy consumption, 

and provide the field with notices of and access to their utility bills. 

Munitions and Explosives Concern – Collaborate with other DOI Bureaus, as well as the 

Department of Defense, to continue to develop a database to prioritize, track and monitor 

munitions and explosives of concern to ensure visitor and employee safety.

Asbestos Surveys and Mitigation in BLM Buildings – BLM will continue to survey BLM 

buildings for asbestos containing material. The surveys include building-specific cost 

estimates for abatement or remediation. The program started in 2009 and 297 inspections 

have been completed to date, with an additional 121 planned for 2012. The 2013 program 

schedule has not been established to date. The program will include remediation of 

asbestos. 

Safety, Health, and the Environment (CASHE) 

Audit at BLM facilities ensure employee safety 

and environmental compliance.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-191

Performance Overview

HAZARD MANAGEMENT AND RESOURCE RESTORATION

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America‘s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife refuges, 

and BLM lands. 

Supporting Bureau Measures

Percent of known contaminated sites 

remediated on BLM-managed land. (BUR) 11% 

30/ 272

17% 

46/ 272

23% 

63/ 272

28% 

76/ 272

34% 

92/ 272

39% 

107/ 272

44% 

122/ 272 +5% 44% 122/ 272

Percent of physical and chemical hazards 

mitigated in appropriate time to ensure 

visitor or public safety. (BUR)

97%

716/ 739

82%

917/ 1,114

91%

1,518/ 

1,676

95% 

514/542

92% 

740/800

91% 

960/1,052

93% 

1,034/1,112 +2% 93% 1,034/1,112
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-192

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Activity: Transportation and Facilities Maintenance

2013

Fixed

Costs &

Change 

from

2011 2012

Related 

Changes

Program 

Changes Budget

2012 

Enacted

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-)

Operations $ 6,047 0 +0 +0 0 +0

FTE 44 0 +0 +0 0 +0

Annual 

Maintenance $ 31,879 0 +0 +0 0 +0

FTE 230 0 +0 +0 0 +0

Deferred 

Maintenance & 

Capital 

Improvements $ 34,429 29,960 +67 +1,039 31,066 +1,106

FTE 75 72 +0 +1 73 +1

Annual 

Maintenance & 

Operations 

Costs $ [37,926] 41,160 +319 +0 41,479 +319

FTE [274] 277 +0 +0 277 +0

Total Activity $ 72,355 71,120 +386 +1,039 72,545 +1,425

FTE 349 349 +0 +1 350 +1

Note: In 2012, the Operations subactivity and the Annual Maintenance subactivity were combined into the Annual 

Maintenance and Operations Cost subactivity. 

The 2013 budget request for Transportation and Facilities Management is $72,545,000 and 350 

FTE, a net increase of $1,425,000 and 1 FTE over the 2012 enacted level. The net increase 

includes a transfer of $1,039,000 and 1 FTE from the Oregon and California Grant Lands 

account. 

ACTIVITY DESCRIPTION

The goals of the Transportation and Facilities Maintenance programs are to protect employee 

and visitor safety, resource values, and public investments, as well as to provide facilities 

management and public lands stewardship. To accomplish this, the BLM focuses these 

programs on:

• Operating clean, safe, and fully functional facilities at recreation sites.

• Performing annual maintenance on all facilities.

• Conducting comprehensive assessments on the physical condition and regulatory 

compliance for all facilities.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-194

• 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.

• Implementing property and asset management planning to accurately inventory and 

describe assets, establish appropriate levels of investment, and adopt public or 

commercial benchmarks and best practices.

The two subactivities within the Transportation and Facilities Maintenance Activity that 

contribute to the proper stewardship of the BLM‘s facilities are:

Deferred Maintenance and Capital Improvements Subactivity-- provides for 

upkeep, repair or replacement of facilities that are impaired or not functional because 

annual maintenance was not performed on schedule. Deferred maintenance 

projects are prioritized per the Department‘s guidance on deferred maintenance and 

capital improvements to address critical health and safety issues, critical resource 

protection needs, energy and building sustainability, critical mission, and code 

compliance. Note: The 2013 BLM budget request includes two technical changes 

that affect the Deferred Maintenance and Capital Improvements subactivity. First, 

the budget eliminates BLM‘s Construction appropriations account. Second, the 

budget shifts base funding in the O&C appropriation‘s Deferred Maintenance 

subactivity into the MLR Deferred Maintenance and Capital Improvements 

subactivity. Beginning in 2013 all construction, deferred maintenance and capital 

improvement projects on all BLM-managed will be funded in the MLR appropriation.

Annual Maintenance and Operational Costs Subactivity -- provides for 

emergency repair, preventive maintenance, cyclic maintenance and condition 

assessments on all facilities, in addition to providing for the utilities, janitorial 

services, and waste management needs of the BLM‘s recreations sites.

Work in this activity includes project planning, site layout, architectural and engineering design, 

cost estimating, value engineering, facility condition assessments, seismic evaluations, energy 

conservation studies, professional inspections of dams and bridges, regulatory compliance 

evaluations for all projects, and contract supervision. The types of facilities maintained by the 

BLM are described below:

Buildings and Administrative Facilities – Buildings on public lands range from 

complex office buildings and large visitor centers to small restrooms and well 

houses. Administrative facilities include but are not limited to office space, fire 

stations, interagency dispatch centers, internal communication sites, equipment 

maintenance shops, and field camps. The BLM maintains and operates 642 

administrative sites including 2016 buildings and ancillary structures.

Recreation Sites – The BLM is responsible for maintaining 2,686 recreation sites, 

with 2,942 buildings and several camping units, picnic units and boat ramps. In 

addition, the BLM is responsible for a portion of the maintenance on numerous 

facilities jointly held with other Federal, State, county, or private entities. 

Transportation – Lands administered by BLM have 53,400 lane miles of roads, 

11,600 miles of trails, and 843 bridges. Management emphasis is on maintaining the 

roads, trails, bridges, and major culverts that receive the greatest public use, present 

the greatest threat to public safety, or are contributing to water quality degradation 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-195

due to improper drainage.

Dams – The BLM manages and maintains 688 dams which have been designated 

with a hazard classification. These dams provide recreation, salinity control, and 

watershed protection. The BLM performs regular inspections, inundation studies, 

dam-break analyses for hazard classification, and dam maintenance. Emergency 

Action Plans are prepared for dams classified as ―High‖ and ―Significant‖ hazard 

dams. Plans are in the early formative stages regarding retirement of certain nonmission essential dams.

Real Property Cost Savings

In 2012, BLM will save $4.4 million, as described in 

the Real Property Cost Savings Plan. This savings 

includes the sum of operations and maintenance 

savings, deferred maintenance savings and lease 

savings. It does not include disposal costs. The 

BLM plans to dispose of 127 assets in 2012 and 

save $833,000 in O&M costs and $2.0 million in 

deferred maintenance costs. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-196

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-197

Activity: Transportation and Facilities Maintenance

Subactivity: Deferred Maintenance and Capital 

Improvements

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Deferred Maintenance & 

Capital Improvements ($000) 34,429 29,960 +67 +1,039 31,066 +1,106

FTE 73 72 0 +1 73 +1

Summary of 2013 Program Changes for Deferred Maintenance & Capital Improvements

Request Component ($000) FTE

Program Changes:

• Transfer from O&C Deferred Maintenance Subactivity +1,039 +1

TOTAL, Program Changes +1,039 +1

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Deferred Maintenance and Capital Improvements program is 

$31,066,000, a program transfer of +$1,039,000 and +1 FTE from the 2012 Enacted level.

Transfer of funds from O&C Deferred Maintenance (+$1,039,000/+1 FTE) –The 2013 budget 

request includes a transfer of +$1,039,000 and +1 FTE from the O&C Deferred Maintenance 

subactivity. Beginning in 2013 all construction, deferred maintenance and capital improvement 

projects on all BLM-managed lands will be funded in this account in the MLR appropriation.

PROGRAM OVERVIEW

Program Components

The components of the Bureau of Land Management‘s Deferred Maintenance and Capital 

Improvements program are as follows:

Improve the overall physical and functional condition of BLM-owned facilities for public 

safety, as well as component renewal of aging infrastructure;

Provide professional engineering services;

Manage environmental and structural risks of facilities;

Manage corrective actions identified through Compliance Assessment Safety, Health 

and the Environment (CASHE) Audits;

Manage corrective actions identified for accessibility provisions;

Manage corrective actions for improvement of energy savings

Develop and build safe facilities for visitors and employees that are in compliance with 

Federal requirements. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-198

The highest priority is given to critical health or safety work, critical resource protection, energy 

and building sustainability, code compliance and mission criticality per the Department‘s 

guidance. The emphasis areas for the program include:

Replacing and reconstructing existing roads, trails, bridges, recreation and 

administrative facilities, and buildings;

Protecting both the visiting public and the environment on BLM-managed lands;

Energy conservation and sustainability are primary elements for all new projects. This policy is 

supported by the provisions of the Energy Policy Act of 2005 (EPACT 2005), Energy 

Independence and Security Act of 2007 (EISA) and the goals of Executive Orders 13123 and 

13514. Completed deferred maintenance projects incorporate the guiding principles of the 

Sustainable Buildings Implementation Plan to achieve:

Reduction of the total ownership cost of facilities; 

Improvement in energy efficiency and water conservation; 

Safe, healthy, and productive built environments; and 

Promotion of sustainable buildings environmental stewardship. 

Through the asset management planning process, the BLM is identifying real property assets 

that are candidates for disposition. Any asset that no longer supports the mission, or that is in 

such poor condition that it is no longer cost-effective to maintain, will be identified for possible 

disposal. 

The long-term goal is to attain a portfolio of constructed assets that are in good physical and 

functional condition and that are aligned with current maintenance resources. The general 

guideline is that Facilities Condition Index (FCI) should be below 0.15 for a facility to be 

considered in acceptable condition. The FCI is the ratio of accumulated deferred maintenance 

to the current replacement value (Facilities Condition Index = Deferred Maintenance/Current 

Replacement Value). It is an indicator of the overall condition of capital assets. BLM currently is 

able to maintain 89-90% of facilities at an acceptable level. Deferred maintenance projects 

target assets with an FCI greater than 0.15. 

Critical Factors

The following are some critical factors impacting the program:

Population growth in the American West can place heavier demands on BLM facilities 

and resources located near urban centers. In the lower 48 states, nearly two-thirds of 

BLM-managed lands are within a one-hour drive of urban areas. 

Many BLM roads that were originally built as administrative roads for managing the 

public lands are now used regularly by the public. This increased usage requires BLM to 

maintain roads more frequently.

The climatic condition impacts the timeframe in which maintenance needs can be 

completed, particularly for road and bridge maintenance.

Means and Strategies

The following are some of the strategies BLM uses to manage the program:

Although there is no time restriction on the use of these funds, BLM complies with the 

following schedule:

o Estimated project cost of $10 million or greater: Schedule one year for project 

planning, one year for design, and no more than two years for construction.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-199

o Estimated project cost of $2 million to $10 million: Schedule one year for project 

planning and design, and no more than two years for construction.

o Estimated project cost below $2 million: Schedule one year for planning and 

design and one year for construction.

Project Proposals: Deferred maintenance needs identified in condition assessments and 

other inspections are developed into specific projects and proposed in the Five-Year 

Deferred Maintenance and Capital Improvement Plan. 

The BLM uses the following strategies to develop processes and use existing requirements to 

assist in managing its asset inventory:

Managing Assets: The BLM manages assets through industry standard performance 

measures, the Asset Priority Index, and the Facilities Condition Index. These measures 

help identify the condition of constructed assets and determine whether the asset 

requires additional annual maintenance, funding from deferred maintenance, or if the 

asset should be disposed.

Asset Management Plan: The ongoing revision of the BLM‘s Asset Management Plan 

(AMP) helps to establish a system that will identify Bureau assets, determining how 

much they will cost to operate, and their importance to the Bureau mission. The AMP 

helps prioritize the distribution of funding to the highest priority assets and assist with 

planning for the disposal of unneeded assets.

Annual Project Planning: The BLM updates the Five Year Deferred Maintenance and 

Capital Improvement Plans annually.

o Projects are prioritized based on critical health and safety needs, resource 

protection needs, energy building sustainability, mission criticality and code 

compliance.

o The planning for each new project has been expanded to include the impacts of 

expected life cycle costs on BLM‘s total budget.

o Project submissions will include the estimated operation expenses, energy cost 

saving and sustainability actions, and the change in the Facilities Condition Index 

(FCI) for all projects. Project Data Sheets list the FCI before a project is begun 

and the projected FCI after a project is completed.

o Projects include capital improvement work, and can include deferred maintenance 

work, as long as the deferred maintenance work comprises a smaller portion of 

the project.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-200

Project Ranking Process

Projects are ranked using a weighting process based on the percentage of the work (total 

project amount) that falls in each of the categories. The weighting factor for each area is 

shown.

o Critical Health and Safety Deferred Maintenance: 10

o Critical Health and Safety Capital Improvement: 9

o Critical Resource Protection Deferred Maintenance: 7

o Critical Resource Protection Capital Improvement: 6

o Energy Policy, High Performance, Sustainable Buildings: 6

o Critical Mission Deferred Maintenance: 4

o Code Compliance Capital Improvement: 4

o Other Deferred Maintenance: 3

o Other Capital Improvements: 1

The percentages must add to 100 percent. The formula places the highest priority on facilityrelated health, safety and resource protection needs. 

2013 PROGRAM PERFORMANCE

In 2013, the planned accomplishments in the Deferred Maintenance and Capital Improvements 

program include projects that total $31 million including 45 deferred maintenance projects, 6

capital improvement projects, disposal actions at various locations, remedy of corrective 

actions, and accessibility projects. The emphasis of the Deferred Maintenance and Capital 

Improvements program will continue to be the protection of the BLM employees, the visiting 

public, and the protection of our nation‘s natural resources.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-201

Performance Overview

DEFERRED MAINTENANCE AND CAPITAL IMPROVEMENTS

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 5: Building a 21st Century Department of the Interior 

Goal 5: Improving Acquisition & Real Property Management

Strategy 1: Effective Management of Facilities

Supporting Bureau Measures

Number of Deferred Maintenance and 

Construction projects completed. 

(BUR)

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

116

Baseline to 

be 

Established

19 N/A 19

Increase the percentage of BLM 

organizational units rated in good 

safety, health, and environmental 

condition (CASHE). (BUR)

89%

107/ 120

93%

112/ 120

91% 

111 / 120

94% 

113/ 120

93% 

111/ 120

93% 

111/ 120

93% 

111/ 124 0% 93% 111/ 124

Comment: The Deferred Maintenance and Capital Improvements Program is project specific and planned performance varies significantly from year to year depending on the scope of 

planned projects. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII-202

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Chapter IV – Management of Lands and Resources Page VIII-203

Activity: Transportation and Facilities Maintenance

Subactivity: Annual Maintenance and Operational 

Costs

2011 

Actual

2012 

Enacted

2013

Change 

from 2012 

Enacted 

(+/-)

Fixed Costs 

& Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Annual Maintenance 

and Operational Costs 

($000) [37,926] 41,160 +319 0 41,479 +319

FTE [274] 277 0 0 277 0

Other Major 

Resources:

POF: Road 

Maintenance (9120) 1,619 2,000 0 0 2,000 0

POF: Quarters 

Maintenance (9710) 580 610 0 +30 640 +30

Major Program IT 

Investments:

Enterprise Facilities 

Maintenance & 

Management System 

(FMMS) 1,046 1,300 0 -188 1,112 -188

Note: In 2012, the Operations subactivity and the Annual Maintenance subactivity were combined into the Annual 

Maintenance and Operations Cost subactivity. 

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Annual Maintenance and Operational Costs program is 

$41,479,000, and 277 FTE.

PROGRAM OVERVIEW

Program Components

The Annual Maintenance and Operational Costs program invests in maintaining the functionality 

of the BLM‘s infrastructure, which provides for visitor safety on public lands and ensures proper 

facilities management. 

Funds are used for emergency, preventive and cyclic maintenance, and to conduct 

baseline facility condition assessments at all BLM facilities including: recreation sites, 

administrative sites, roads, bridges, dams, and trails. The goal of the program is to 

perform sufficient annual and operational maintenance so that no new deferred 

maintenance needs accrue on BLM‘s constructed assets. 

Funds are used for the following types of activities and services at recreation sites: 
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Management of Lands and Resources Page VIII-204

o Janitorial services;

o Cleaning and waste management of comfort stations;

o Rodent and pest control in buildings;

o Landscape upkeep; and payment of utilities (such as electricity, water, sewage, 

fuel, and pressure washing).

Other Funding Sources

Road Maintenance funds provide for the permanent appropriation of money collected 

from commercial road users in lieu of user maintenance. 

Quarters Maintenance is funding used to maintain and repair all BLM employeeoccupied quarters from which quarters rental charges are collected.

Funding from Recreation Fee Collection sites augment the annual maintenance of the 

sites where the fees were collected. 

Critical Factors

The BLM‘s constructed assets are dispersed throughout BLM administered lands. The weather 

conditions impact and can adversely affect the ability to maintain roads and bridges. As urban 

sprawl has grown in the West, BLM has experienced increased visitation at BLM facilities, which 

tends to lead to increased wear and tear on facilities.

Means and Strategies

The Annual Maintenance and Operational Costs program uses the following strategies:

In conducting program work, the BLM adheres to the requirements of Executive Order 

13327, "Federal Real Property Asset Management,", which includes using public and 

commercial benchmarks and best practices; employing life-cycle cost-benefit analysis; 

providing appropriate levels of investment; accurately inventorying and describing all 

assets; and providing safe, secure, and productive workplaces. 

The BLM uses two industry standard performance measures, the Asset Priority Index 

and the Facilities Condition Index, for identifying the condition of constructed assets and 

targeting assets that can be disposed or require additional annual maintenance or 

supplemental funding from deferred maintenance. 

Assessment Process

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 sites and administrative 

allows the BLM to use the industry standard Facilities Condition Index (FCI) as a method of 

measuring the condition and change of condition of facilities. 

The FCI is the ratio of accumulated deferred maintenance to the current replacement value 

(Facilities Condition Index = Deferred Maintenance/Current Replacement Value). It is an 

indicator of the overall condition of capital assets. The general guideline is that FCI should be 

below 0.15 for a facility to be considered in acceptable condition. The Asset Business Plan 

uses the FCI, and it is the vehicle for management decision on the disposal of assets.
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Management of Lands and Resources Page VIII-205

2013 PROGRAM PERFORMANCE

The Annual Maintenance and Operational Costs program will continue to maintain constructed 

assets supporting BLM administrative, recreational, and infrastructure needs, and emphasize 

areas under greatest pressure from community growth. BLM is experiencing higher use of 

recreation sites. According to data from the Public Land Statistics the number of visitor days at 

BLM recreation sites has increased from 30,150,000 in FY 2009 to 32,577,000 in FY 2010 to 

33,148,000 in FY 2011.

In fiscal year 2011 BLM reconfigured how assets are reported, resulting in 4,763 structures and 

855 buildings being reported in the Federal Real Property Profile. These structures consist of 

dams, bridges, electrical and communication systems, trails, and roads. In 2013, BLM will be 

able to maintain 89-90% of facilities at an acceptable level. 
Bureau of Land Management 2013 Budget Justifications

Chapter IV – Management of Lands and Resources Page VIII-206

Performance Overview

ANNUAL MAINTENANCE & OPERATIONS

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 5: Building a 21st Century Department of the Interior 

Goal 5: Improving Acquisition & Real Property Management

Strategy 1: Effective Management of Facilities

Supporting Bureau Measures

Percent of buildings 

maintained in 

adequate condition, 

determined by 

Facilities Condition 

Index (FCI) < 0.15. 

(BUR)

New in 

2012

New in 

2012

New in 

2012

New in 

2012

90% 

4,480/ 

4,949

90% 

4,440/4,955

90% 

4,441/ 

4,955

0%

89% 

4,441/ 

4,955

Percent of sites 

maintained in 

adequate condition, 

determined by 

Facilities Condition 

Index (FCI) < 0.15. 

(BUR)

New in 

2012

New in 

2012

New in 

2012

New in 

2012

89% 

3,064/3,431

89% 

3,048/3,422

89% 

3,056/3,438 0% 88% 3,056/3,438

Number of lane 

miles of roads 

maintained in 

adequate condition. 

(BUR)

35,144 36,123 35,303 35,000 32,059 35,000 35,000 0 35,000

Note: All measures are included the Operations and Annual Maintenance subactivities in the Oregon & California Grant Lands 

appropriation.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 207

Activity: National Landscape Conservation System

Subactivity: National Monuments and National 

Conservation Areas

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Nat'l Monuments & Nat'l 

Cons Areas ($000) 31,870 31,819 +296 +3,000 35,115 +3,296

FTE 253 253 0 +8 261 +8

Summary of 2013 Program Changes for National Monuments & National Conservation Areas

Request Component ($000) FTE

Program Changes:

General Program Increase +3,000 +8

TOTAL, Program Changes +3,000 +8

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the National Monuments and National Conservation Areas 

(Monuments and NCAs) program is $35,115,000 and 261 FTEs, a program increase of 

$3,000,000 and 8 FTEs from the 2012 enacted level.

Program Increase – America’s Great Outdoors (+$3,000,000/+8 FTE) – The requested 

increase will strengthen BLM management of the 37 separate units within the BLM's 

Monuments and NCAs program. The budget request will enable the program to improve and 

expand the following:

$750,000 will be directed to expanding the program's law enforcement capabilities to 

provide enhanced resource protection and visitor safety.

$750,000 will be directed to developing interpretive and environmental education 

products and programs to enhance visitors' understanding and appreciation of the 

resource values the program protects.

$700,000 will be directed to assessments, inventories, monitoring, and science and 

research projects that will enhance the Bureau's understanding of nationally significant 

natural and cultural resources and facilitate better informed management strategies and 

public services.

$300,000 will be directed to recreation site and facility maintenance to enhance visitor 

safety and positive experiences on the public lands.

$500,000 will be directed to projects that restore the resources, objects, and values for 

which Monuments and NCAs were designated, with an emphasis on projects that

involve youth to help the BLM support the Secretary‘s Youth Initiative by hiring, 

educating, and engaging the next generation of America‘s leaders about the objects and 

values of Monuments and NCAs, and to accomplish management objectives using youth 

to inventory for noxious weeds and provide trail maintenance. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 208

Performance Change

NATIONAL MONUMENT & NATIONAL CONSERVATION AREA MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 President's 

Budget

Change from 

2012 to 2013

Long-term 

Target

2016

Mission Area 1: Provide Natural and Cultural Resources Protection and Experiences

Goal 1: Protect America's Landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise 

our national parks, wildlife refuges, and BLM lands.

Heritage Resources Education and Outreach 

(Products Delivered) 0 326 547 275 576 344 500 +156 300

Provide Outreach Through Interpretation & 

Envir Educ (Programs/Events Deliv) 0 1,993 2,246 2,250 2,679 2,813 2,700 -113 2,500

Acres of Heritage Resource Inventories (Acres) 0 14,152 25,428 25,000 17,274 27,500 25,000 -2,500 30,000

Plan for Interdisciplinary Activities (Number) 0 13 5 10 6 10 12 +2 10

Process SRP's for Commercial Users & Groups 

(Number of active permits) 0 275 308 384 278 400 300 -100 384

Recreation Site Building Annual Maintenance

(Number of Buildings) 0 222 135 137 176 137 200 +63 137

Administrative Site Annual Maintenance 

(Number of Buildings) 0

26 39 35 36 35 50

+15

35

Recreation Site Non-Building Annual 

Maintenance (Sites Maintained) 0 205 322 317 297 317 300 -17 317

Apply Weed Treatments (Acres) 0 6,647 8,484 7,000 8,550 7,150 9,000 +1,850 7,500

Monitor Recreation Areas (Acres) 0 2,794,872 1,561,440 830,000 1,389,203 1,000,000 1,300,000 +300,000 830,000

Monitor Grazing Allotments (Number) 0 135 155 153 116 157 150 -7 153

Monitor Streams/Riparian Habitat (Miles) 0 413 292 400 428 440 450 +10 400

Monitor Terrestrial Habitat (Acres) 0 591,292 510,125 600,000 324,791 660,000 500,000 -160,000 610,000

Monitor Species Populations (Number) 0 9,406 612 700 691 740 700 -40 725

Conduct Patrol Enforcement Activities (Number 

of Incidents) 0 1,719 2,753 800 2,143 1,000 2,500 +1,500 800

Note: Output variations occur because programmatic priorities change from year to year, and because some activities (Inventorying and monitoring for example) are necessary before other activities can begin.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 209

PROGRAM OVERVIEW

This program encompasses the BLM‘s 16 National Monuments, 16 National Conservation 

Areas, three Outstanding Natural Areas, one Cooperative Management and Protection Area, 

and one Forest Reserve. The BLM‘s NMs and NCAs are primarily managed to conserve, 

protect, restore, and enhance America‘s national heritage. All 8.9 million acres of these public 

lands are often referred to as the crown jewels of the BLM‘s National Landscape Conservation 

System. 

These lands represent the wide variety of spectacular public land resources administered by the 

BLM. The BLM‘s NMs and NCAs include lands as diverse as the 1.2 million-acre Steese 

National Conservation Area, which protects two of Alaska‘s most important caribou herds; the 

Fort Stanton-Snowy River Cave National Conservation Area, which protects both the aboveground historic remnants of the U.S. military‘s 19th century presence in the New Mexico Territory 

and the unique subterranean geologic resources of the Snowy River Cave system; and 

Colorado‘s Canyons of the Ancients National Monument, which protects the highest known 

density of First American archeological sites in the United States, including cliff dwellings, 

villages, kivas, shrines, agricultural fields, and rock art, some of which are over 10,000 years 

old. 

Over 57 million people now live within 30 miles of public lands. The elevated profile of public 

lands designated as NMs and NCAs often attract regional, national, and international visitors. 

The BLM is challenged to provide the more intensive recreation management and law 

enforcement actions necessitated by this high level of visitation. 

The BLM‘s NMs and NCAs will be expected to play an important role by serving as long-term 

reserves for vulnerable native plant and animal populations. Therefore, it is essential to ensure 

that the ecosystems within NMs and NCAs remain resilient to the planet‘s land health stressors. 

The collection of baseline scientific data, through the ecoregional assessments and other 

means, is a critical tool for managers to determine how to successfully adapt to changing fire 

regimes, the spread of invasive and exotic species, and other climate-driven ecological 

changes. BLM‘s ability to quickly implement and adapt the management strategies developed 

from the eco-regional assessments will be a critical component to the conservation of America‘s 

natural resources. 

While other Federal land management agencies also manage areas established by Congress or 

Presidential proclamation for conservation purposes, the BLM‘s program remains unique in that 

units continue to be managed under the principles of multiple-use. Traditional activities such as 

hunting, livestock grazing and Native American cultural and religious uses continue throughout 

many of these landscapes. Oil and gas development also continues on some of these public 

lands where valid rights existed prior to their designation. This multiple-use approach honors the 

essential role these working landscapes have played in molding the history, culture, and 

economy of the western United States. 

In September 2011, the National Landscape Conservation System released its 15 year strategy 

to help guide the direction of management for all National Landscape Conservation System 

units in cooperation with the rest of the Bureau of Land Management. The new NLCS strategy 

supports the BLM‘s multiple-use mission by ensuring that NLCS management efforts will focus 

on conservation, while still allowing for other compatible uses, consistent with the designating 

legislation or Presidential proclamation. In addition to conservation, the strategy emphasizes 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 210

continued collaboration, public involvement, and youth engagement. For more information on 

the National Landscape Conservation System Strategy, visit the BLM website 

at: http://www.blm.gov/wo/st/en/info/newsroom/2011/september/NR_09_30_2011.html

In addition to the program measures reported, recent program highlights include: 

Cultural site inventories are ongoing and site monitoring continues under the NCA Site 

Steward program. This year, paleontological inventories initiated in the NCA on 200 

acres revealed a number of significant Jurassic and Cretaceous paleontological sites. 

Additional inventories are needed to determine the extent of the NCA‘s cultural and 

paleo resources.

Grand Staircase-Escalante National Monument in Utah announced the name of a new 

species of dinosaur discovered there. The dinosaur – a raptor – was named Talos 

sampsoni in honor of Scott Sampson, paleontologist, contributor to the children‘s 

television series Dinosaur Train, chief curator at the Utah Museum of Natural History, 

and frequent researcher on the Monument. Paleontological discoveries at the Monument 

are enhancing and changing the very nature of what we know about the age of the 

dinosaurs.

Over 14,600 volunteer hours were contributed to accomplishing native plant and bird 

habitat restoration by cleaning trash, pulling herbaceous invasive, and planting native 

hammock species. Volunteers performed work at the Jupiter Inlet Lighthouse 

Outstanding Natural Area in Florida, in 2010, and BLM estimated the work was the 

equivalent of $304,410 of labor. This is just one example of the incredible importance of 

and opportunities possible with robust volunteer programs.

Funding History & Other Funding Sources

The subactivity for the National Monuments and National Conservation Area program was 

established in 2009. The total funding identified in the below table by state only includes base 

funding (i.e., annual, recurring funds). Many non-NLCS BLM programs also contribute a portion 

of their funding to support the indirect and overhead costs needed to sustain the organization.

Additional one-time funds are available to Monuments and NCAs and may be allocated from 

both the BLM‘s Headquarters and State Offices to individual units for specific projects. Funds 

are allocated to BLM State Offices to provide statewide program support, manage indirect costs, 

and distribute to individual units for specific projects based on statewide priorities. BLM State 

Offices generally allocate these funds subsequent to the publishing of the Budget Request. 

The table below outlines the funding history by state for the NMs and NCAs program and only 

includes funding provided to each unit from this subactivity. Additional funding from other 

Bureau subactivities may be provided to these areas for one-time purposes and specific 

projects. These types of allocations vary by unit and from year to year. These variable funding 

sources are not included to facilitate year-to-year comparisons of program appropriations. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 211

Base Funding History of the

National Monuments and National Conservation Area Program

State a 2010

Enacted

2011

Enacted

2012

Enacted

2013

Request

Alaska b

440 440 440 440

Arizona 6,446 6,446 6,446 6,446

California 4,765 4,765 4,765 4,765

Colorado 3,349 3,349 3,349 3,349

Eastern States 180 180 180 180

Idaho 2,279 2,279 2,279 2,279

Montana 1,448 1,448 1,448 1,448

New Mexico 1,203 1,203 1,203 1,203

Nevada 891 891 891 891

Oregon 1,431 1,431 1,431 1,431

Utah 5,782 5,782 5,782 5,782

Washington Office, National Operations 

Center, National Training Center, and 

Bureau-Wide Administrative Support 

2,855 2,855 2,855 2,855

Additional One-time Projects Allocated 232 232 232

Funds to be Allocated c

3,439

Total $31,301 $31,870 $31,819 $35,115

Footnotes

a. Funds allocated to BLM State Offices to provide statewide program support, manage indirect costs, 

and distribute to individual units for specific projects based on statewide priorities. BLM State 

Offices generally allocate these funds subsequent to the publishing of the Budget Request. 

b. In Alaska, the White Mountains National Recreation Area was removed from the National 

Landscape Conservation System under the Omnibus Public Land Management Act of 2009. 

c. Funds are generally allocated subsequent to the publishing of the Budget Request to high priority 

units. 

2013 PROGRAM PERFORMANCE

The program will focus on the following priority efforts during FY 2013:

Ensure the conservation, protection, and restoration of the resources, objects, and values 

for which Monuments and NCAs were designated: 

o Implement completed land use plans for Monuments and NCAs designated in the 

Omnibus Public Land Management Act of 2009, as required by law.

o Expand understanding through assessment, inventory, and monitoring of resources, 

objects, and values.

o Provide a scientific foundation for decision-making by developing science plans for 

Monuments and NCAs.
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Chapter VIII – Management of Lands and Resources Page VIII - 212

o Use Monuments and NCAs as outdoor laboratories for new, innovative management 

practices, including the use of livestock grazing to manage both invasive and special 

status plants, and adaptive management through comprehensive travel and 

transportation management.

Collaboratively manage Monuments and NCAs as part of the larger human and natural 

landscape:

o Eradicate or control invasive, noxious plants, conduct vegetation treatments, remove 

decommissioned roads, and restore healthy ecosystem function to promote habitat 

connectivity and landscape-scale ecological sustainability.

o Provide for resource protection and public safety through law enforcement, including 

collaborative law enforcement actions near the U.S. – Mexican border.

o Proactively engage communities of place and interest to collaboratively provide 

sustainable recreational experiences to visitors, such as through outfitting, guiding, 

and geotourism, which can also benefit local economies.

Raise awareness of the value and benefit of Monuments and NCAs:

o Improve the use of Web-based technology to reach out to the public about 

opportunities on Monuments and NCAs.

o Grow and foster partnerships, including the development and maintenance of 

Friends groups for Monuments and NCAs.

o Work with the Wounded Warriors project and other programs to engage military 

veterans, including partnerships with military installations located near Monuments 

and NCAs.

o Expand the use of volunteers, including by enhancing planning and tracking the 

important contributions volunteers make to managing Monuments and NCAs.

o Provide world-class education and interpretation to the public.

o Recruit and retain youth for employment in conservation. 

Build upon the BLM‘s commitment to conservation:

o Cultivate shared responsibility for the BLM‘s conservation mandate by managing 

Monuments and NCAs as an integral part of the BLM‘s multiple-use and sustainedyield mission, including by showcasing the accomplishments of other programs such 

as rangeland resources management, natural gas development, and recreation.

o Identify a manager for every Monument and NCA Unit; some units are managed as 

part of a larger field office. 

o Ensure consistent policy development and interdisciplinary implementation of 

programs and projects.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 213

Performance Overview

NATIONAL MONUMENT & NATIONAL CONSERVATION AREA MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 President's 

Budget

Change from 

2012 to 2013

Long-term 

Target

2016

Mission Area 1: Provide Natural and Cultural Resources Protection and Experiences

Goal 1: Protect America's Landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise 

our national parks, wildlife refuges, and BLM lands.

Heritage Resources Education and Outreach 

(Products Delivered) 0 326 547 275 576 344 500 +156 300

Provide Outreach Through Interpretation & 

Envir Educ (Programs/Events Deliv) 0 1,993 2,246 2,250 2,679 2,813 2,700 -113 2,500

Acres of Heritage Resource Inventories (Acres) 0 14,152 25,428 25,000 17,274 27,500 25,000 -2,500 30,000

Plan for Interdisciplinary Activities (Number) 0 13 5 10 6 10 12 +2 10

Process SRP's for Commercial Users & Groups 

(Number of active permits) 0 275 308 384 278 400 300 -100 384

Recreation Site Building Annual Maintenance

(Number of Buildings) 0 222 135 137 176 137 200 +63 137

Administrative Site Annual Maintenance 

(Number of Buildings) 0

26 39 35 36 35 50

+15

35

Recreation Site Non-Building Annual 

Maintenance (Sites Maintained) 0 205 322 317 297 317 300 -17 317

Apply Weed Treatments (Acres) 0 6,647 8,484 7,000 8,550 7,150 9,000 +1,850 7,500

Monitor Recreation Areas (Acres) 0 2,794,872 1,561,440 830,000 1,389,203 1,000,000 1,300,000 +300,000 830,000

Monitor Grazing Allotments (Number) 0 135 155 153 116 157 150 -7 153

Monitor Streams/Riparian Habitat (Miles) 0 413 292 400 428 440 450 +10 400

Monitor Terrestrial Habitat (Acres) 0 591,292 510,125 600,000 324,791 660,000 500,000 -160,000 610,000

Monitor Species Populations (Number) 0 9,406 612 700 691 740 700 -40 725

Conduct Patrol Enforcement Activities (Number 

of Incidents) 0 1,719 2,753 800 2,143 1,000 2,500 +1,500 800

Note: Output variations occur because programmatic priorities change from year to year, and because some activities (Inventorying and monitoring for example) are necessary before other activities can be 
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Activity: Land and Resource Information Systems

Subactivity: Land and Resource Information Systems

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Land and Resource Information

Systems ($000) 16,697 15,827 0 -15,827 0 -15,827

FTE 87 85 0 -85 0 -85

Summary of 2013 Program Changes for Land and Resource Information Systems

Request Component ($000) FTE

Program Changes:

• Transfer to Information Technology Management -12,827 -85

• Transfer to Lands and Realty Management -3,000 0

TOTAL, Program Changes -15,827 -85

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Land and Resource Information Systems is $0 and 0 FTE, a net 

program change of -$15,827,000 and -85 FTE from the 2012 enacted level.

Transfer to Information Technology Management (-12,827,000 / -85 FTE) – The budget 

transfers $12,827,000 and 85 FTE from Land and Resource Information Systems to a new 

Information Technology Management subactivity. The new subactivity, which also includes 

$14,673,000 and 45 FTE from the former Information Systems Operations subactivity, will allow 

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

Transformation initiative.

Transfer to Lands and Realty Management (-$3,000,000 / 0 FTE) – The budget transfers 

$3,000,000 from Land and Resource Information Systems to the Lands and Realty 

Management subactivity for the funding of lands and realty information systems. This business 

practice is consistent with the ownership, management and funding of other BLM information 

systems by benefitting programs.

PROGRAM OVERVIEW

In 2013, the activities conducted by this program will transfer to the new Information Technology 

Management subactivity. Please see that subactivity section for a program overview.

2013 PROGRAM PERFORMANCE

In 2013, the activities conducted by this program will transfer to the new Information Technology 

Management subactivity. Please see that subactivity section for 2013 program performance.
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Activity: Challenge Cost Share

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Challenge Cost Share ($000) 1,202 7,455 +27 0 7,482 +27

FTE 4 24 0 0 24 0

Other Major Resources:

CCS Partners (estimate) 3,000 20,000 0 0 20,000 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Challenge Cost Share program is $7,482,000 and 24 FTE.

PROGRAM OVERVIEW

Program Components 

The Challenge Cost Share (CCS) program works through partnerships to accomplish highpriority habitat, recreation and cultural resource work ―on-the-ground.‖ The BLM uses CCS 

funds by matching them with partners‘ resources. Projects are funded with at least a 1:1 

Federal: non-federal match by states in funds or in-kind contributions from partners. Some 

projects receive a match ranging from (1:3) to (1:6). Positive interaction with partners promotes 

the BLM‘s commitment to and involvement with local communities. The CCS program currently 

supports the following activities:

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.

Developing and maintaining collaborative partnerships is critical to the success of the CCS 

program and the BLM. Partners who interact with the BLM and public lands in general have 

interests that include: 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. The BLM works with Federal, state and municipal 

agencies; school districts, universities, recreation and social groups; non-profit organizations, 

special interest groups; national advocacy groups; industry, private corporations; local 

businesses; the Girl Scouts; and the Boy Scouts of America to conserve of public lands, enrich 

people‘s outdoor experience and involve both rural and urban entities to explore the outdoors. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 218

Engaging the public through partnerships is a key component in reaching stakeholders and 

youth, and the BLM is interested in encouraging these successful relationships as a normal way 

of doing business on both large and small scale projects.

CCS projects are prioritized and selected by an interdisciplinary group of BLM State Office and 

field office personnel and then forwarded to the National CCS Team. The National CCS Team 

evaluates the merit of projects and approves the projects in coordination with BLM State Office 

program leads. Project selection criteria include the project‘s ability to: 

Provide multiple program benefits.

Produce on-the-ground accomplishments which restore or sustain public land health 

(focusing on important habitats).

Protect cultural and heritage resources and meet public demand for diverse recreational 

opportunities.

Sustain valued and beneficial partnerships.

2013 PROGRAM PERFORMANCE

The BLM has identified national priorities, and has required State and Field Offices to submit 

projects that meet these criteria. BLM‘s National CCS Team will select the projects, using the 

process described above. 

In 2011, the BLM‘s CCS projects primarily focused on Sage-grouse projects. Accomplishments 

included the following:

Acres inventoried and treated, 752,083 and 15,338 acres respectively;

Habitat projects completed or maintained, 21 projects;

Conservation actions for species of concern, 7 for ESA-listed species and 5 for non-ESA 

listed species;

Habitat monitored or habitat treatments evaluated, 121,209 acres; and

220 populations monitored

In 2013, the BLM expects to select CCS projects that restore habitat that benefits bats, birds, 

deer, elk, and fish while cross-benefitting recreation activities such as hiking, fishing, and 

hunting in a variety of land designation areas across more than twelve states. In addition, BLM 

expects to select CCS projects that support the National Landscape Conservation System, as 

well as the bureau-wide wildlife, recreation and cultural programs. The BLM also anticipates 

selecting environmental education and public outreach projects pertaining to off-road vehicles, 

archeological collections, and native plants. Projects will continue to support youth programs 

that encourage interaction and understanding of the natural environment, while creating 

opportunities to explore and enjoy America‘s Great Outdoors.

The CCS program contributes units of accomplishment to multiple program subactivities with 

over 120 program elements, encompassing a wide variety of work activities which assess, treat, 

and monitor the BLM lands. While CCS contributes to several workloads and is project-based, 

the measurement of CCS accomplishments varies each fiscal year. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 219

Activity: Workforce and Organizational Support

Subactivity 2011

Actual1

2012

Enacted1

2013 Change

from

2012 

Enacted

(+/-)

Fixed Costs 

& Related 

Changes

(+/-)

Program

Changes

(+/-)

Budget

Request

Information 

Systems 

Operations $ 15,343 14,673 0 -14,673 0 -14,673

FTE 51 45 0 -45 0 -45

Administrative 

Support $ 50,287 49,130 +396 0 49,526 +396

FTE 338 338 0 0 338 0

Bureauwide Fixed 

Costs $ 91,307 91,161 +4,912 +3,252 99,325 +8,164

FTE 0 0 0 0 0 0

Information 

Technology 

Management $ [29,040] [27,500] +148 +27,500 27,648 27,648

FTE [138] [130] 0 +130 130 +130

Total Activity $ 156,937 154,964 +5,456 +16,079 176,499 +21,535

FTE 389 383 0 +85 468 +85

1

Funding levels shown for Information Technology Management in 2011 and 2012 include amounts allocated to the Land and 

Resource Information Systems and Information Systems Operations subactivities, minus the $3.0 million being transferred to the 

Lands and Realty Management subactivity for lands and realty information systems.

The 2013 budget request for Workforce and Organizational Support is $176,499,000 and 468

FTE. The program change of +$16,079,000 over the 2012 enacted level includes an increase 

of +$3,252,000 and 0 FTE to realign base funding and net internal transfers of +$12,827,000 

and +85 FTE.

ACTIVITY DESCRIPTION

The Workforce and Organizational Support activity funds services related to general-use 

automated systems and specified business practices that cannot be directly tied to a specific 

program output, such as human resources management, equal employment opportunity, 

financial management, property and acquisition management, and information technology 

management. The Bureau of Land Management strives to provide these critical support and 

business services efficiently and effectively in order to support the overall BLM mission.

Estimated Workforce and Organizational Support Costs – Section 405 of the Department of 

the Interior, Environment, and Related Agencies Appropriations Act, 2012 (P.L. 112-74), 

includes the following requirement for disclosure of overhead charges, deductions, reserves and 

holdbacks:

Public Law No. 112-74, Division E, Title IV, Section 405. Estimated overhead 

charges, deductions, reserves or holdbacks from programs, projects, activities 

and subactivities to support government-wide, departmental, agency, or bureau
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 220

administrative functions or headquarters, regional, or central operations shall be 

presented in annual budget justifications and subject to approval by the 

Committees on Appropriations of the House of Representatives and the Senate. 

Changes to such estimates shall be presented to the Committees on 

Appropriations for approval.

The BLM funds the costs described in Section 405 through a combination of direct 

appropriations in this activity (Workforce and Organizational Support), the former Land and 

Resource Information Systems activity, and program assessments. For 2013, the BLM 

estimates these requirements will be approximately $296.5 million, as shown in the table below.

Administrative Costs

(Section 405)

2011

Actual1

2012

Enacted1

2013

Change

from

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes

(+/-)

Program

Changes

(+/-)

Budget

Request

Land and Resource Info. Systems213,697 12,827 0 -12,827 0 -12,827

Information Systems Operations 15,343 14,673 0 -14,673 0 -14,673

Administrative Support 50,287 49,130 +396 0 49,526 +396

Bureauwide Fixed Costs 91,307 91,161 +4,912 +3,252 99,325 +8,164

Information Technology Mgt.30 0 +148 +27,500 27,648 +27,648

Subtotal, Direct Appropriations 170,634 167,791 +5,456 +3,252 176,499 +8,708

National Assessments 30,607 35,000 0 0 35,000 0

State (Regional) Assessments 85,000 85,000 0 0 85,000 0

Subtotal, Assessments 115,607 120,000 0 0 120,000 0

Total 286,241 287,791 +5,456 +3,252 296,499 +8,708

1

Funding levels shown in 2011 and 2012 for Land and Resource Information Systems do not include the $3.0 million being 

transferred to the Lands and Realty Management subactivity in 2013 for lands and realty information systems.

2

The Land and Resource Information Systems activity has not traditionally been displayed in this table, but is included to show 

the transfer of $12,827 to the new Information Technology Management subactivity.

3

Information Technology Management is a new subactivity starting in 2013.

Direct Appropriations – In 2013, the BLM requests $176.5 million in direct appropriations for 

activities described in Section 405. Appropriations are requested in three subactivities: 

Administrative Support, Bureauwide Fixed Costs and Information Technology Management 

(combination of former Information Systems Operations and Land and Resource Information 

subactivities). Direct appropriations provide approximately 60 percent of the funding necessary 

to maintain these functions.

Program Assessments – In addition to direct appropriations, and in order to provide the level of 

funding needed for Administrative Support, Bureauwide Fixed Costs and Information 

Technology Management, the BLM assesses its programs at both the national and state-office 

levels according to a prorated share of prior year full-time equivalent (FTE) usage. These 

assessments provide about 40 percent of the BLM‘s total Section 405 costs. The estimated 

program assessments in 2013 are $120.0 million. These program assessments are conducted 

with the oversight and administrative management of the BLM Director, Executive Leadership 

Team, Budget Strategy Team, and Information Technology Investment Board. 
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National Assessments – The BLM assesses programs at the National level for centrally 

funded initiatives (CFIs) to pay for administrative support, Bureauwide program activities, 

and information technology programs – many of which are mandated and/or fixed costs

assessments by the Department through the DOI Working Capital Fund. These 

initiatives are centrally funded because the initiatives benefit all programs or all 

employees, and cannot be identified as benefiting any one program, such as the Federal 

Personnel Payroll System (FPPS). National program assessments for CFIs are prorated

to program areas based upon historical costs and FTE usage. These assessments 

include over $1.0 million for the Bureau‘s Priority Fund, which is used to assist field 

offices and programs with high-priority, unplanned or unfunded needs which arise during 

the fiscal year.

State (Regional) Assessments – The BLM‘s State Offices also assess programs for 

costs at the State level that are not identifiable to a specific program output. In this way, 

for example, all programs within a state fund support services staff salaries. These 

costs also are prorated to program areas based upon historical costs and FTE usage.

DOI Working Capital Fund – The Department of the Interior (DOI) manages a Departmental 

Working Capital Fund (WCF) to provide services to the BLM and other DOI bureaus and offices. 

The BLM pays for these services with a combination of direct appropriations and program 

assessments. Program assessments are typically used for services that benefit the entire 

organization and support the DOI Strategic Plan, the BLM focus areas, and the DOI‘s 

requirements. Many of these services are standard and reoccur on an annual basis, but some 

are fee-for-service based. The DOI and BLM have reimbursable service agreements for these 

services. The detailed tables that follow show the BLM‘s portion of Departmental WCF fees for 

services, both centrally billed and direct billed, for 2011 through 2013.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 222

U.S. DEPARTMENT OF THE INTERIOR WORKING CAPITAL FUND

BUREAU OF LAND MANAGEMENT CENTRALIZED BILLING

2013 BUDGET

(in thousands of dollars)

Activity/Office

2011 

Actual

2012 

Estimate

2013 

Estimate

Indian Water Rights Office 60 57.1 57.1

Subtotal, Secretary's Immediate Office 60 57.1 57.1

Document Management Unit 12 3.7 18.4

FOIA Tracking & Reporting System 204.4 140.5 152.4

Subtotal, Office of the Executive Secretariat 216.4 144.2 170.8

Alaska Affairs Office 260.1 262.4 267.6

Alaska Resources Library and Information Services 532.5 533.5 506.1

Subtotal, Secretary's Immediate Office 792.6 795.9 773.7

Departmental News and Information 128.4 129.9 114.2

Subtotal, Office of Communications 128.4 129.9 114.2

Departmental Museum 280.1 197.8 193.2

Subtotal, Secretary‘s Immediate Office 280.1 197.8 193.2

Asbestos-Related Cleanup Cost Liabilities 20.2 3.4 3.3

FedCenter 2.7 2.2 2.1

Compliance Support ESF-11/ESF-11 Website 16.2

Subtotal, Office of Environmental Policy and Compliance 22.9 5.6 21.6

Invasive Species Council 226.2 214.4 206

Land and Water Settlements 97 96.8 96.8

Invasive Species Coordinator 38.4 38.3 38.3

Subtotal, Office of Policy Analysis 361.6 349.6 341.2

CPIC 29.2 28 35.2

Subtotal, Office of Budget 29.2 28 35.2

Financial Internal Controls & Performance Reporting 

(Formerly: 160.3 162.5 121.6

Travel Management Center 28.1 29.5 26.1

e-Travel (Formerly: e-Gov Travel) 120.7 127 411.6

Subtotal, Office of Financial Management 309.1 319 559.3

FBMS Master Data Systems & Hosting 191.1 179.7

Subtotal, Office of Property & Acquisition Management 191.1 179.7

Interior Collections Management System 50.5 50.5 47.9

Space Management Initiative 52.8 51.5 45.4

Renewable Energy Certificates 15.9 4.3 3.9

Facility Maintenance Management System 30.9 40.8 50.6

Subtotal, Office of Property and Acquisition Management 150 147 147.8

SBA Certifications 1.9 0

Subtotal, Small and Disadvantaged Business Utilization 1.9 0
Bureau of Land Management 2013 Budget Justifications

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U.S. DEPARTMENT OF THE INTERIOR WORKING CAPITAL FUND

BUREAU OF LAND MANAGEMENT CENTRALIZED BILLING

2013 BUDGET

(in thousands of dollars)

Activity/Office

2011 

Actual

2012 

Estimate

2013 

Estimate

Planning and Performance Management 197.9 174.8 172.2

Subtotal, Office of Planning and Performance Management 197.9 174.8 172.2

Firefighter and Law Enforcement Retirement Team 87.4 80.7 131.2

Department-wide OWCP Coordination 87.7 89.2 84.2

OPM Federal Employment Services 76.2 66.6 66.6

Accessible Technology Center 49.8 50.5 44.6

Accountability Team 78.3 76.1 88

Employee and Labor Relations Tracking System 4.3 4.4 4.3

Subtotal, Office of Human Resources 383.8 367.5 418.9

EEO Complaints Tracking System 5.5 6.6 6.6

Special Emphasis Program 7.7 7.8 6.9

Subtotal, Office of Civil Rights 13.2 14.4 13.4

Occupational Safety and Health 229.1 257.3 240.5

Safety and Health Training Initiatives 22.6 0 0

Safety Management Information System 198.5 203.1 185.1

Subtotal, Office of Occupational Health and Safety 450.2 460.4 425.6

DOI Learn 275 245.9 0

DOI Executive Forums (Leadership Development) 18.9 19.2 110.3

Financial Management Training 28.5 0 0

SESCDP & Other Leadership Programs 26.3 27 0

Online Learning (Technology Solutions Division) 76 77 313.7

Learning and Performance Center Management 91.5 63.7 0

Albuquerque Learning & Performance Center 60.6 82.7 78.5

Anchorage Learning & Performance Center 156.3 140.3 0

Denver Learning & Performance Center 41.4 83 79.4

Washington Learning & Performance Center 56.5 44.2 43.5

DOIU Management 75.4 88.5 104.3

Subtotal, DOI University 906.4 871.5 729.8

Security (Classified Information Facility) 70.8 70.2 70.2

Law Enforcement Coordination and Training 136.3 134.9 126.9

Security (MIB/SIB Complex) 150.3 233 233

Victim Witness 25.2 25 26.5

Subtotal, Office of Law Enforcement and Security 382.7 463 456.5

Interior Operations Center 316.9 384.3 311.3

Emergency Preparedness 121.6 123.7 117.5

Emergency Response 173.8 172.1 163.5
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 224

U.S. DEPARTMENT OF THE INTERIOR WORKING CAPITAL FUND

BUREAU OF LAND MANAGEMENT CENTRALIZED BILLING

2013 BUDGET

(in thousands of dollars)

Activity/Office

2011 

Actual

2012 

Estimate

2013 

Estimate

MIB Health and Safety 2.7 3.8 4.7

Subtotal, Office of Emergency Management 615 683.9 597

Electronic Records Management 192.1 125.6 160.6

Enterprise Services Network 2,729.60 2,522.30 2,369.00

Web & Internal/External Comm 70.9 70.2 0

Enterprise Architecture 716.3 599.6 510.4

FOIA Tracking & Reporting System 0 0

Frequency Management Support 147.9 148.5 152.3

IT Security-IVV 469.8 391.1 285.7

Capital Planning 346.2 289.1 456

Privacy (Information Management Support) 120.9 116 83.6

IT Security - Information Assurance Division 297.8 298.4 169.8

Active Directory 217.2 308.8 314.1

Enterprise Resource Management 79.8 76.7 179.6

DOI Access 199.1 207.3 186.1

NTIA Spectrum Management 212.4 274.7 304.7

Radio Program Management Office 197.9 188.6 162.5

Data at Rest 6.6 7.3 0

IT Asset Management 56.7 54.7 138.1

OCIO Project Management Office 165.3 131.8 0

Threat Management 94.2 122.2 340

IOS Collaboration 155.3 149.8 134.8

Unified Messaging 0 199.2 179.3

Federal Relay Service 6.3 6.3 5.7

Subtotal, Office of the Chief Information Officer 6,482.00 6,288.00 6,132.50

Alternative Dispute Resolution Training 7.9 7.9 7.5

Subtotal, Collaborative Action and Dispute Resolution 7.9 7.9 7.5

Valuation Services 303.6 273.7 150.3

Subtotal, Office of Valuation Services 303.6 273.7 150.3

Conservation and Educational Partnerships 41.3 40.9 36.7

Subtotal, Youth, Partnerships and Service 41.3 40.9 36.7

Mail and Messenger 243.7

Services Passport and Visa Services 16.5

Health Unit 9.9

Federal Executive Board 43.1

Special Events Services 3.7
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 225

U.S. DEPARTMENT OF THE INTERIOR WORKING CAPITAL FUND

BUREAU OF LAND MANAGEMENT CENTRALIZED BILLING

2013 BUDGET

(in thousands of dollars)

Activity/Office

2011 

Actual

2012 

Estimate

2013 

Estimate

Safety and Environmental Services 16.4

Shipping and Receiving 11.4

Moving Services 8.2

Vehicle Fleet 6.5

Property Accountability Services 21.7

Family Support Room 0.9

Interior Complex Management & Svcs 30.3

Departmental Library 412.3

Mail Policy 53.4

Space Management Services 11

Subtotal, Administrative Operations Directorate 889

Aviation Management 4,487.80

Subtotal, Aviation Management Directorate 4,487.80

Contingency Reserve 23.8 23.5 22.4

Cooperative Ecosystem Study Units 60.3 53.5 53.5

CFO Financial Statement Audit 757.7 759.2 764.2

Enterprise Geospatial Information Management 216.1 0

Subtotal, Department-wide Activities 1,057.90 836.3 840.1

Recreation One-Stop 25 12.6 12.6

e-Government Initiatives (WCF Contributions Only) 698.2 433.2 618.6

Volunteer.gov 15.1 15.1 15.1

Subtotal, Department-wide Activities 738.2 460.9 646.3

Ethics 93.8 93.3 84

ALLEX Database 6.3 0

FOIA Appeals 104.8 112 100.8

Subtotal, Office of the Solicitor 204.9 205.3 184.7

Subtotal, Other OS Activities 14,137.10 13,513.60 18,781.90

Activity/Office

2011 

Actual

2012 

Estimate

2013 

Estimate

NBC IT Security Improvement Plan 521.2 443.7 443.7

MIB Data Networking 11.5 16 15.8

Information Mgmt. - FOIA and Records Management 0 58.2 58.9

Telecommunication Services 50.5 48.6 67.1

Integrated Digital Voice Communications System 63.2 36.1 33.6

Desktop Services 23.8 22.9 17
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 226

U.S. DEPARTMENT OF THE INTERIOR WORKING CAPITAL FUND

BUREAU OF LAND MANAGEMENT CENTRALIZED BILLING

2013 BUDGET

(in thousands of dollars)

Activity/Office

2011 

Actual

2012 

Estimate

2013 

Estimate

Audio Visual Services 8.2 11.4 11.4

Interior Complex Cabling O&M 1.4 2 0

Subtotal, NBC Information Technology Directorate 679.9 639 647.5

FPPS/Employee Express - O&M 2,870.50 2,669.70 3,034.50

HRMS (HR LOB W-2 Surcharge) 116 0

Drug Testing 236.2 233.7 267.6

Subtotal, NBC Human Resources Directorate 3,222.70 2,903.40 3,302.10

Partnership Schools & Commemorative Programs 3.9 0 0

Departmental Library 467 419.3 0

Interior Complex Management & Services 24.1 29.4 0

Family Support Room 0.8 1.1 0

Property Accountability Services 16.2 22 0

Vehicle Fleet 6.6 6.6 0

Moving Services 6.1 8.3 0

Shipping and Receiving 8.4 11.6 0

Safety and Environmental Services 12.3 16.6 0

Space Management 7.1 11.1 0

Federal Executive Board 45.1 43.4 0

Health Unit 7.3 10.1 0

Passport and Visa Services 17.3 16.7 0

Mail and Messenger Services 248.4 214.8 0

Mail Policy 56.1 54 0

Special Events Services 4.2 4.1 0

Cultural Resources & Events Management 48.9 0 0

Subtotal, NBC Administrative Operations Directorate 979.7 869.1 0

Transportation Services (Household Goods) 2.5 2.4 2.5

Financial Systems 2,393.50 2,000.30 1,797.70

IDEAS 147.7 125.9 105.7

Quarters Program 10.1 10.6 9.6

FBMS Master Data Management 220.9 122.7 151.9

NBC FBMS Conversion 50.4 56.1 0

Consolidated Financial Statement System 168.6 184.3 185.1

Subtotal, NBC Financial Management Directorate 2,993.60 2,502.30 2,252.50

FBMS Hosting / Applications Management 836 795.9 280.8

FBMS Redirect - FFS 260.5 402.7 451.6

FBMS Redirect - IDEAS 397.5 416.7 438.8
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 227

U.S. DEPARTMENT OF THE INTERIOR WORKING CAPITAL FUND

BUREAU OF LAND MANAGEMENT CENTRALIZED BILLING

2013 BUDGET

(in thousands of dollars)

Activity/Office

2011 

Actual

2012 

Estimate

2013 

Estimate

FBMS Help Desk - NBC Customer Support Center 518.5

Subtotal, NBC FBMS Support 1,494.00 1,615.30 1,689.70

Aviation Management 4,763.20 4,250.00

Aviation Management System - O&M 0 228.3

Subtotal, NBC Aviation Management Directorate 4,763.20 4,478.20

Subtotal, National Business Center 14,133.10 13,007.30 7,891.90

IT Transformation (ITT) 2,606.80

Subtotal, Office of the Chief Information Officer 2,606.80

Subtotal, Office of the Chief Information Officer 2,606.80

TOTAL, Centralized Billing 28,270.20 26,521.00 29,280.50
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 228

U.S. DEPARTMENT OF THE INTERIOR WORKING CAPITAL FUND

BUREAU OF LAND MANAGEMENT DIRECT BILLING

2013 BUDGET

(in thousands of dollars)

Activity/Office 

2011 

Actual

2012 

Estimate

2013 

Estimate

Imagery for the Nation 308.6 403 403

Subtotal, Policy, Management and Budget 308.6 403 403

Ocean Coastal Great Lakes Activities 13.6 13.6 13.6

Subtotal, Office of Policy Analysis 13.6 13.6 13.6

Office of Budget 

Single Audit Clearinghouse 2.6 1 1

Subtotal, Office of Financial Management 2.6 1 1

Federal Assistance Award Data System 5.3 2.5

Subtotal, Office of Acquisition and Property Management 5.3 2.5

e-OPF 237.7 272 283.3

EAP Consolidation 245.9

Subtotal, Office of Human Resources 237.7 272 529.3

EEO Training 9.5 22.5 22.5

EEO Investigations 28.8 28.8 14.4

Subtotal, Office of Civil Rights 38.4 51.3 36.9

Albuquerque Learning & Performance Center 5 28.9 28.9

Anchorage Learning & Performance Center 12.8 22.9

Denver Learning & Performance Center 0 30.4 30.6

Online Learning 15.1 59.3 59.3

Washington Leadership & Performance Center 6.2 22.3 22.4

Subtotal, DOI University 39.1 163.6 141.2

Incident Management Analysis and Reporting System 233.8 233.8 233.8

OLES BLM Detailee 147.9 147.9 147.9

Subtotal, Office of Law Enforcement and Security 381.7 381.7 381.7

DAS LESEM BLM Detailee 234.8 234.8 234.8

Subtotal, Office of Emergency Management 234.8 234.8 234.8

Oracle Licenses and Support 110.2 110.3 212.3

Enterprise Architecture Services 700 700 700

Microsoft Enterprise Licenses 2,419.10 2,658.80 2,658.80

Anti-Virus Software Licenses 312.7 312.7 289.7

Enterprise Services Network 3,387.40 1,660.10 2,665.40

DOI Access 421.5 937.7 1,290.40

Data at Rest Initiative 10.4 10.5 10.6

EID Office Space 12 12.2

EID Rack Space 12.1 16.9 16.9

Enterprise Resource Management 300 300 300
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 229

U.S. DEPARTMENT OF THE INTERIOR WORKING CAPITAL FUND

BUREAU OF LAND MANAGEMENT DIRECT BILLING

2013 BUDGET

(in thousands of dollars)

Activity/Office 

2011 

Actual

2012 

Estimate

2013 

Estimate

Unified Messaging 1,655.70 1,655.70

Subtotal, Office of the Chief Information Officer 7,673.40 8,374.90 9,812.20

Office of Valuation Services 

Creative Communications 48.5

Reimbursable Mail Services 73.8

Subtotal, Administrative Operations Directorate 122.3

e-Mail Archiving (Cobell Litigation) 705.5 902.7 929.8

FY 2012 CFO Audit 0 0

Subtotal, Department-wide Programs 705.5 902.7 929.8

Federal FSA Program 246.8 267.4 292.2

FBMS Change Orders 254.8 204.2 180

Colorado School of Mines 15.2 0 0

ESRI Enterprise Licenses 1,597.70 1,597.70 1,597.70

Subtotal, Department-wide Programs 2,114.50 2,069.30 2,069.90

Subtotal, Office of International Affairs 

Subtotal Other OS Activities 11,755.10 12,870.50 14,675.70

Customer Support Services Division 8.4 8.3 8.5

Subtotal, NBC Information Technology Directorate 8.4 8.3 8.5

Client Liaison and Product Development Division 62.7 63.3

Payroll Operations Division 119.5 120.6

Personnel & Payroll Systems Division 451.2 346.3

HR Management Systems Division 535.3 545.4

Quicktime Services 560.1 598.4 0

Payroll & HR Systems 1,873.70

Subtotal, NBC Human Resources Directorate 1,728.80 1,674.00 1,873.70

Facilities Reimbursable Services 21.2 21.1

Creative Communications 40.2 40.2

Reimbursable Mail Services 68.5 72.1

Subtotal, NBC Administrative Operations Directorate 130 133.5

Subtotal National Business Center 1,867.10 1,815.80 1,882.20

TOTAL, Direct Billing 13,622.20 14,686.30 16,557.90
Bureau of Land Management 2013 Budget Justifications

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Activity: Workforce and Organizational Support

Subactivity: Information Systems Operations

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Information Systems Operations 

($000) 15,343 14,673 0 -14,673 0 -14,673

FTE 51 45 0 -45 0 -45

Summary of 2013 Program Changes for Information Systems Operations

Request Component ($000) FTE

Program Changes:

• Transfer to Information Technology Management -14,673 -45

TOTAL, Program Changes -14,673 -45

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Information Systems Operations is $0 and 0 FTE, a program 

change of -$14,673,000 and -45 FTE from the 2012 enacted level.

Transfer to Information Technology Management (-$14,673,000 / -45 FTE) – The budget 

transfers $14,673,000 and 45 FTE from Information Systems Operations to a new Information 

Technology Management subactivity. The new subactivity, which also includes $12,827,000 

and 85 FTE from the former Land and Resource Information Systems subactivity, will allow the 

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

Transformation initiative.

PROGRAM OVERVIEW

In 2013, the activities conducted by this program will transfer to the new Information Technology 

Management subactivity. Please see that subactivity section for a program overview.

2013 PROGRAM PERFORMANCE

In 2013, the activities conducted by this program will transfer to the new Information Technology 

Management subactivity. Please see that subactivity section for 2013 program performance.
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Activity: Workforce and Organizational Support

Subactivity: Administrative Support

2011 

Actual

2012 

Enacted

2013 Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Administrative Support ($000) 50,287 49,130 +396 0 49,526 +396

FTE 338 338 0 0 338 0

Major Program IT Investments:

Collections and Billings System 

(CBS) 1,964 2,170 0 -200 1,970 -200

Communique (WCMS): 010-04-

01-07-02-0470-04 184 184 0 0 184 0

Electronic Official Personnel Folder 

(eOPF) 237 260 0 +10 270 +10

Financial and Business 

Management System (FBMS) 288 303 0 +15 318 +15

FPPS Direct Bill Bureau 

Contribution 31 35 0 +2 37 +2

General Land Office Automated 

Records System (GLO) 581 564 0 0 564 0

Hiring Management 330 330 0 0 330 0

Quicktime Bureau Contribution 

Form 140 155 0 +3 158 +3

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Administrative Support is $49,526,000 and 338 FTE.

PROGRAM OVERVIEW

The Administrative Support subactivity funds the following functions:

Executive and Management Decisions

Legislative, Public and Regulatory Affairs and Correspondence

Budget Formulation and Execution

Financial Management

Property and Acquisition Management

Management Systems

Personnel and Organizational Management

Human Resources

Program and Management Evaluations

Service First
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 234

Equal Employment Opportunity

Privacy

Safety

Means and Strategies

The Administrative Support subactivity funds services related to the 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 of the 

BLM. The Administrative Support subactivity 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, BLM conducts Management 

and Program Evaluations to identify and acknowledge the best practices, procedures and 

processes. 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.

Funding History and Other Funding Sources

Many of the programs funded by the Administrative Support subactivity contribute to multiple 

BLM activities (i.e., Equal Employment Opportunity and Service First) and are also financially 

supported by many benefiting subactivities Department and Bureau-wide.

2013 PROGRAM PERFORMANCE

In 2013, 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 subactivity will focus on the following operations of the Bureau:

Financial Management – The BLM will continue to operate National Centers and related 

facilities that offer support services to a variety of critical programs that include fire support, 

uniforms, property, accounting, contracting, acquisition, space leasing, treasury investments, 

and the development and operation of financial, procurement, and property systems.

Improved Financial Performance – The BLM will continue to maintain an unqualified (clean) 

financial audit opinion, and make available to all employees through the FBMS timely and 

accurate financial information. The ability to link budget and performance through cost 

management, and to access financial data in real time has fostered a Bureauwide ethic of fiscal 

accountability. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 235

Cost Management – The BLM will continue its use and development of the Collections and 

Billing System (CBS) and its interaction with the FBMS system. The FBMS system includes 

electronic links that integrate multiple business applications that will minimize data entry and 

maximize efficiencies through the reuse of data. This web-based system is a single collections 

and billings system that is easy for users to access and use. The BLM will continue to refine its 

cost management system that provides important information for tracking its spending, as well 

as utilizing the Treasury‘s Intra-Governmental Payment and Collection system to expedite 

Federal reconciliations and improve the government‘s precision in tracking funds moving from 

agency to agency.

Performance Improvement – The BLM will continue to use the cost management information 

systems along with other management information tools to evaluate program effectiveness, and 

help allocate budgetary resources across the organization to maximize performance and cost 

effectiveness.

Road Maintenance – The BLM will continue to use cost management tools to evaluate 

equipment utilization and equipment replacement to determine if contracting these activities will 

be more cost effective. 

Disposal of Personal Property – The BLM will continue to dispose of excess personal property 

to other Federal and State agencies, to donate computers and other electronics to local schools 

when possible, and to sell working capital fund vehicles and heavy equipment on EBay‘s 

auction web site. These activities have reduced overhead costs, increased visibility, improved 

revenue, and created fast sales and the transfer of monies to BLM. Proceeds from the sale of 

vehicles are returned to the working capital fund to augment the cost of replacement vehicles.

Workforce Planning – In 2013, 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 (PMF) Program, Student Career 

Experience Program (SCEP), Student Temporary Employment Program (STEP), and other 

human capital management programs as viable tools for recruiting and filling entry-level 

positions and for meeting its future skill requirements. Also, in 2011, the BLM placed greater 

emphasis on hiring veterans and veterans with disabilities through the following special hiring 

authorities and appointments: Veterans Recruitment Appointment (VRA), Veterans Employment 

Opportunity Act of 1998 (VEOA), 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 granted in 2012 to 

maintain and expand partnerships with the U.S. Forest Service (USFS), the National Park 

Service (NPS), and the U.S Fish and Wildlife Service (FWS). The Bureau will work to improve 

customer service and seek additional cost savings and productivity improvements. The BLM 

currently shares 61 sites with other agencies. The BLM, USFS, NPS, and FWS continue to 

provide budget funding allocations to field offices for the sharing of operations and services, as 

appropriate. This includes staff and services provided by the BLM, USFS, NPS and FWS to

customers and communities. For more information on Service First, please see the Crosscutting Programs chapter.
Bureau of Land Management 2013 Budget Justifications

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Activity: Workforce and Organizational Support

Subactivity: Bureauwide Fixed Costs

2011

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Bureauwide Fixed Costs ($000) 91,307 91,161 +4,912 +3,252 99,325 +8,164

FTE 0 0 0 0 0 0

Summary of 2013 Program Changes for Bureauwide Fixed Costs

Request Component ($000) FTE

Program Changes:

• Realign Base Funding +3,252 0

TOTAL, Program Changes +3,252 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Bureauwide Fixed Costs is $99,325,000 and 0 FTE, a program 

change of +$3,252,000 from the 2012 enacted level.

Realign Base Funding (+$3,252,000 / 0 FTE) – The program increase of $3.3 million will fund 

certain increased fixed costs in 2012 that were funded through program assessments.

PROGRAM OVERVIEW

The Bureauwide Fixed Costs subactivity funds the following:

The Departmental Working Capital Fund (WCF) 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. BLM directly leases 95 general purpose buildings and 54 buildings are leased 

through GSA or other federally owned property.

The Land Mobile Radio (LMR) program provides two-way radio voice services for the 

BLM. The primary customers are wildland fire, law enforcement, and resources staff. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 238

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 the Federal Telecommunications System 

(FTS) 2001 Intercity Service costs including long distance voice circuit, interoffice data 

service, video, and electronic mail service. These costs are based on the type of 

service, bandwidth, volume, and length of each call. The FTS 2001, provided by the 

MCI Corporation, is the inter-city carrier for the BLM. Data communications service is 

based upon the number of connections, type of service, bandwidth, and carrier point of 

presence and length of circuits. Local carriers, other than MCI‘s FTS 2001, are used for 

intra-late data communications service in many locations as a cost savings measure. 

These costs are designated as non-FTS costs and services and are provided by the 

local tariff service provider. All other telecommunications services, including local basic 

commercial telephone, GSA consolidated services, cellular services (which are funded 

from individual State/National Center operating funds), and Enterprise Services Network, 

are included in the Department‘s WCF.

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 2013 covers costs for a 12-month 

period and is paid to the Department of Labor through the Department's Employee 

Compensation Fund, pursuant to 5 U.S.C. 8147(b) as amended by Public Law 94-273.

Critical Factors

The critical factors in the Bureauwide Fixed Costs program: 

The Space Management program promotes and encourages sustainability. All new BLM 

facilities comply with BLM Sustainable Building Implementation Plans, while addressing 

current and emerging needs.

Presidential Memorandum – Disposing of Unneeded Federal Real Estate dated June 10, 

2010, emphasized the need to:

o Improve utilization of facilities through innovative space management, such as 

alternative work arrangements and telework agreements.

o Eliminate lease arrangements that are not cost effective.

o Pursue consolidation opportunities with other agencies in common asset types, 

such as data centers, office space, and warehouses.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 239

The 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. There is a Department-wide freeze 

of all leased and GSA-assigned space at 2010 levels.

2013 PROGRAM PERFORMANCE

In 2013, the BLM will continue to manage the National Land Radio program, 

telecommunications, the Federal Personnel Payroll System, unemployment costs, mail and 

postal costs, the Employee Compensation Fund, and office space leasing, which is the largest 

expense of BLM‘s fixed costs. 

The following long term goals have been established as part of the BLM‘s Space Management 

program:

Evaluate and reduce GSA provided space whenever such a reduction can be 

accomplished economically.

Evaluate the potential of consolidating offices (e.g. two field offices in different states, 

field offices with state offices, and state offices with centers).

Maximize the use of existing owned buildings, warehouses, and wareyards whenever 

possible instead of occupying leased space.

Utilize extensions of existing leases when appropriate in order to allow time to prioritize 

long-term leasing actions.

Whenever financially beneficial, reduce the size and change the layout of leased 

warehouses.

Implement the use of high-density, storage systems for office and warehouse areas.

Promote telework wherever a corresponding reduction in leased office space would 

occur.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 240

Bureauwide Fixed Costs

(dollars in thousands)

2011 

Actual

2012 

Enacted

2013 

Budget 

Request

Space Rental – GSA 21,635 22,644 22,929

Space Rental – BLM 30,785 29,692 30,065

BLM Radio Support 689 689 689

BLM Telecommunications 5,600 5,433 5,433

BLM Mail Services 1,969 1,969 1,969

GSA Publications 15 15 15

Workers Compensation 9,096 8,608 8,794

Unemployment Compensation 6,802 7,456 9,017

DOI Working Capital Fund 10,121 10,093 12,800

2012 Increased Fixed Costs 

Funded Through Program 

Assessments

0 [3,252] 3,252

Other Fixed Costs 4,595 4,562 4,362

Total Funding 91,307 91,161 99,325
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 241

Activity: Workforce and Organizational Support

Subactivity: Information Technology Management

2011 

Actual1

2012 

Enacted1

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Information Technology 

Management ($000) [29,040] [27,500] +148 +27,500 27,648 +27,648

FTE [138] [130] 0 +130 130 +130

Major Program IT Investments:

Corporate Metadata Repository 

(CMR) [304] [115] 0 0 115 0

E-Forms [258] [0] 0 0 0 0

IT Asset Management System 

(ITAMS) [593] [593] 0 -28 565 -28

Electronic Records Mgmt.: 010-

04-01-07-02-0473-04 [0] [0] 0 0 0 0

Land & Resources Project Office 

Public Helpdesk Support [99] [0] 0 0 0 0

Reference Theme Serving System 

(RTSS) [98] [0] 0 0 0 0

1

Funding levels shown for 2011 and 2012 include amounts allocated to the Land and Resource Information Systems and 

Information Systems Operations subactivities, minus the $3.0 million being transferred to the Lands and Realty Management 

subactivity for lands and realty information systems.

Summary of 2013 Program Changes for Information Technology Management

Request Component ($000) FTE

Program Changes:

• Transfer from Information Systems Operation Subactivity +14,673 +45

• Transfer from Land & Resources Information Systems Subactivity +12,827 +85

TOTAL, Program Changes +27,500 +130

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Information Technology Management is $27,648,000 and 130

FTE, a program change of +$27,500,000 and +130 FTE from the 2012 enacted level.

Create New Information Technology Management Subactivity (+$27,500,000 / +130 FTE) –

The budget transfers a total of $27,500,000 and 130 FTE from two subactivities—$14,673,000 

and 45 FTE from Information Systems Operations and $12,827,000 and 85 FTE from Land and 

Resource Information Systems—to create a new Information Technology Management 

subactivity. The establishment of a unified subactivity will allow the BLM to more effectively 

implement the Department of the Interior‘s Information Technology Transformation initiative.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 242

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;

Portfolio Management – Providing guidance and oversight for the management of all IT 

investments to ensure resource optimization and a balance of investments that reflects 

BLM priorities;

Capital Planning and Investment Control (CPIC) – Supporting the definition and 

selection of IT capital assets; providing oversight for non-capital investments; and 

ensuring that IT investments are managed and aligned with BLM mission area goals and 

objectives;

Acquisition – Reviewing and evaluating IT procurement to ensure continued compliance 

with applicable laws, regulations and guidance;

Information Resources Management – Managing and providing oversight of 

implementation of the Freedom of Information Act, the Privacy Act, Section 508 of the 

American Disabilities Act, IT Configuration Management, Indian Trust and the Records 

Act; ensuring manual and electronic records and systems are accessible, properly 

maintained, documented, scheduled and disposed of; and tracking and monitoring

records preservation orders to ensure records are properly secured, accessible and 

retrievable to respond to court orders and requesters;

Enterprise Architecture (BEA) – Documenting BLM business processes, data framework, 

and related IT projects to create a cost-effective, customer-oriented business enterprise 

to support BLM‘s strategic mission;

Data Management and Administration – Ensuring that the information BLM uses in 

decision making is accurate, timely, useful, and free of bias;

National Applications – Managing national applications and systems throughout their life 

cycles of investment and ensuring successful service delivery through all phases—

concept, design, construction, data management, operation, support and maintenance—

in order to meet business needs while ensuring system data integrity;

Infrastructure – Providing compliant and effective technology platforms and 

environments; and

Security – Developing security-related policies, procedures, and guidance; providing 

technical assistance for securing major applications and general support systems; 

overseeing security compliance efforts; maintaining an inventory of systems and their 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 243

security Certification and Accreditation status; coordinating IT Security Education and 

Awareness efforts; and developing IT security performance measures and reports.

Other Funding Sources

Every BLM program also contributes some funding for IT activities. Major investments in the 

BLM IT portfolio are funded by the programs supported by the investments. IT infrastructure 

investments are funded proportionately by all programs.

2013 PROGRAM PERFORMANCE

The BLM has achieved success in lowering the overall costs of IT by implementing dynamic 

approaches to respond to national priorities. In 2013, the BLM will continue to seek 

collaborative ways to improve upon the methodologies used to provide the resources necessary 

to most effectively and efficiently manage more than 248 million acres of public lands for 

multiple uses.

Because the scope of the information needed to support the BLM‘s mission is vast, the systems 

required to manage this information have grown increasingly complex. Information systems are 

used throughout the BLM to collect data on land health, water quality, restored ecosystems, 

hazardous fuels reduction, land contamination, habitat protection, cultural and natural heritage 

resources, oil and gas leases and permits, lease applications, minerals and grazing permits, 

timber sales, recreation, and financial transactions.

The BLM has set the following goals and objectives for IT Management in 2013:

Goal: Innovate in Technology to Add Business Value

o Objective: Modernize BLM‘s Mission blueprint to effectively manage business 

needs

o Objective: Promote a culture that fosters innovation to solve business needs

o Objective: Improve workforce capabilities to work remotely

o Objective: Increase integration of innovative business applications and 

infrastructure

Goal: Manage Data as a Corporate and Public Asset

o Objective: Improve data standardization

o Objective: Improve data collection and storage solutions for enterprise use

o Objective: Ensure bureau and interagency data availability and protection

o Objective: Protect field capacity to process data 

Goal: Contain Costs

o Objective: Implement value-added IT solutions while reducing total cost of 

ownership

o Objective: Implement inventory control/asset management

o Objective: Reduce the cost of legacy systems and redundant systems

o Objective: Measure all bureau-wide IRM costs and benefits

o Objective: Increase management controls on IT contracts and service providers
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 244

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 245

Activity: Mining Law Administration

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Mining Law Administration 

($000) 36,696 39,696 0 0 39,696 0

Mining Law Administration 

Offset ($000) -36,696 -39,696 0 0 -39,696 0

FTE 302 309 0 +8 317 +8

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Mining Law Administration is $39,696,000 and 317 reimbursable 

FTE, an increase of 8 FTE from the 2012 enacted level. 

Legislative Changes

The budget includes legislative proposals to reform hardrock mining by providing a better return 

to the taxpayer from hardrock production on Federal lands. 

The first proposal charges a new fee, based on the volume of material removed, on hardrock 

production on both Federal and non-Federal lands and uses the receipts to restore the most 

hazardous AML sites on public and private lands. Please refer to the Summary of Program and 

Legislative Changes for more information on this proposal.

Another proposal would institute a leasing process under the Mineral Leasing Act of 1920 for 

certain minerals (gold, silver, lead, zinc, copper, uranium, and molybdenum) currently covered 

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

would be governed by the new leasing process and subject to annual rental payments and a 

royalty of not less than 5 percent of gross proceeds. Half of the receipts would be distributed to 

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

Treasury. Pre-existing mining claims would be exempt from the change to a leasing system, but 

would be subject to increases in the annual maintenance fees under the General Mining Law of 

1872. The Budget proposes to increase the annual maintenance and to eliminate the fee 

exemption for miners holding 10 or fewer mining claims. These changes would discourage 

speculators from holding claims that they do not intend to develop. Holders of pre-existing 

mining claims for these minerals could voluntarily convert their claims to leases. The Office of 

Natural Resources Revenue will collect, account for, and disburse the hardrock royalty receipts.

The legislation would provide a mechanism for royalty relief under certain situations, in the 

manner currently set out in the MLA.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 246

PROGRAM OVERVIEW

Program Components

The BLM Mining Law Administration 

Program (Locatable Minerals) is responsible 

for providing access to mineral resources in 

an environmentally responsible manner. To 

accomplish this goal, the BLM administers 

mining claims and collects location and 

annual maintenance fees. The BLM also 

processes notices for exploration and plans 

of operations for exploration and production, 

as well as use and occupancy proposals. 

Reclamation plans are evaluated and bonds 

are posted to ensure adequate financial 

guarantees. The BLM also inspects notices 

and plans of operation to ensure 

compliance with terms and conditions of 

notices, plans of operations and use and occupancy authorizations. BLM takes enforcement 

actions when the terms and conditions of operations have been violated. Finally, the BLM is 

responsible for conducting mineral examinations to determine valid existing rights under the 

mining laws.

The General Mining Law of 1872

The program is responsible for managing exploration and development of locatable minerals 

available on public lands under the General Mining Law of 1872, and the Federal Land Policy 

and Management Act of 1976.

Since 1993, claimants have been required to pay an annual maintenance fee for each mining 

claim and site in lieu of performing assessment work as previously required under the General 

Mining Law of 1872.

Congress also added a one-time location fee in 1993. The maintenance fee is currently $140 

per claim and the location fee is currently $34 per claim.

Critical Factors

In 2013, the BLM will continue to provide access to locatable mineral resources while ensuring 

environmental protection. The BLM will also continue to implement new training for managing 

uranium exploration and mining due to the increase in new uranium mining claims, exploration 

notices, and mining plans of operations over the past few years and will continue coordinating 

with other federal agencies with primary responsibility for approval of uranium milling activities. 

In an ongoing effort to increase efficiency the BLM will continue working with State agencies to 

streamline multiple agency processes and minimize the time necessary to authorize exploration 

and development activities. 

Since 2005, the number of active mining claims has risen dramatically. A mining claim is 

considered active when all annual assessment work requirements have been met as required 

by 43 CFR 3830. Strong commodity prices from copper and gold increased active mining claims 

by 10 percent in 2011, from 361,474 in 2010 to 399,614 in 2011 (based on preliminary data). 

Photo of an open-pit highwall at a New Mexican Copper Mine. 
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 247

The BLM expects the level of locatable minerals activity to remain steady, primarily due to 

increases in world commodity prices. The demand for new mining claims is likely a reflection of 

recent increases in gold, copper, and uranium prices.

Demand for gold remains strong, which continues to stimulate gold exploration and production 

on public lands. In 2011, new mining claims in Nevada increased by 58 percent. Although 

these new claim locations are thought to be primarily for gold, claim activity for vanadium and 

molybdenum has shown strong signs of increase.

There has also been interest in location of mining claims for minerals associated with the 

development of alternative energy systems, for example lithium and rare earth minerals which 

have assorted clean energy applications. The BLM has recently experienced a substantial 

increase in the total number of mining claims in the states of Colorado, New Mexico, Utah, and 

Wyoming. These states contain known uranium districts from which production has previously 

occurred.

0

500

1000

1500

2000

Nov-01

May-02

Nov-02

May-03

Nov-03

May-04

Nov-04

May-05

Nov-05

May-06

Nov-06

May-07

Nov-07

May-08

Nov-08

May-09

Nov-09

May-10

Nov-10

May-11

US Dollars per Gold Troy Ounce

US Dollars per Troy Ounce
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 248

*The Mining Claims and Revenues chart is based upon the most recent data. The new and total mining claims illustrate the 

numbers as reported in the Public Land Statistics (PLS) for the indicated fiscal years. The 2011 claim data was derived from the 

draft 2011 PLS data that is subject to change. The revenue estimates for2011 and earlier are based upon the amounts credited to 

the MLR appropriation and the amounts deposited in the hardrock mining claim maintenance fee Treasury account. All 2012 and

2013 data are projections.

For several years, mining claim locations on likely uranium deposits increased due to the 

increase in the price of uranium oxide (yellow cake) which is used for the production of electrical 

energy in nuclear power plants in the U.S. and overseas. Processed uranium is used for the 

production of approximately 20 percent of the electrical energy in nuclear power plants in the 

U.S. The renewed interest in uranium exploration and eventual production from domestic 

sources began in fiscal year 2003 and carried through to 2008. Most of the mining claims for 

uranium have been located and are now being evaluated for possible production. Market 

signals for other Technology Metals have prompted the location of new mining claims for Rare 

Earths or the re-evaluation of existing mining claims for Rare Earth bearing metals. Similar 

location and re-evaluation activities are presently occurring on mining claims that may hold the 

other Technology Metals. Technology Metals are elements that form the building blocks of 

technologies, and include but are not limited to, Rare Earths, Lithium, Indium, Germanium, 

Vanadium and Cobalt. The principal need of industry is to have a sufficient land base to warrant 

an exploration and evaluation program. Mining claims found to have no mineral values of 

interest are typically either dropped or sold by the current holder. Dropped claims may be 

relocated by an entirely new set of mining claimants.

0

10

20

30

40

50

60

70

80

0

50

100

150

200

250

300

350

400

450

2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013

Revenues - Millions

Mining Claims - Thousands

Fiscal Year

Mining Claims and Revenues* 

New Mining Claims Total Mining Claims Revenue in Millions ($)
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 249

*U3O8 restricted price, Nuexco exchange spot, US$ per pound. 

**The Federal Land Policy and Management Act of 1976, which requires the filing of mining claims with the Bureau of Land 

Management does not require a claimant to report the commodity for which the claim is filed. The above estimates are based on 

the number of new filings, due to the prevalence of this commodity within the states of Colorado, New Mexico, Utah, and Wyoming. 

****The above chart displays an estimate of the number of mining claims that are used to prospect for uranium. 

Other Funding Sources

The Mining Law Administration program is primarily funded through this subactivity. Under the 

authorities of 43 U.S.C. 1474 and 1734(a), the BLM retains the processing fees it collects from 

mining claim recordation actions and mineral patent adjudication to recover the full cost of 

processing these documents. A revised fee schedule was promulgated in November 2005. 

The Mining Claims and Revenues chart shows the recent history of mining claims and mining 

claim revenue. The processing fees for recording a new mining claim, annual filings, transfers 

of interest, amendments to previously recorded documents, deferments of assessment, and 

protests increased in June of 2009. In addition, the BLM will charge a processing fee, on a case 

by case basis, for proposed mining plans of operations requiring an environmental impact 

statement. A processing fee is also applicable to validity or common variety examinations and 

associated reports performed in connection with a patent application, 43 CFR 3809.100 

(withdrawn lands) or 43 CFR 3809.101 (common variety determinations) on a case-by case 

basis.

2013 PROGRAM PERFORMANCE

The increase of funding in received in 2012 and carried into 2013 will enhance the performance 

of mining law administration across all operations in the program. BLM plans to add 7 FTE 

during 2012 and will add 8 FTE by the beginning of 2013 with the funding increase provided in 

$0.00

$20.00

$40.00

$60.00

$80.00

$100.00

$120.00

0

5000

10000

15000

20000

25000

30000

35000

40000

45000

2005 2006 2007 2008 2009 2010 2011 2012

Average U2O3 Spot Price per Pound

Number of Claims per FY

Year

Uranium Mining Claims 

vs.

Uranium Price

Estimated New Uranium Mining Claims
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 250

2012. The addition of 8 FTE in 2013 will result in an increase of the number of inspection 

completed from an estimated 1450 inspections in 2012 to 1525 inspection in 2013. The focus of 

the inspection program is on active operations, meaning that operations with reclamation 

earthwork completed and waiting for revegetation success are a lower priority for inspection.

The average processing time of Plans of Operations increased from 17 months in 2010 to 22

months in 2011 due to the number of Plans of Operation submitted, the size and complexity of 

the plans processed, and the lack of staffing resources available to process the plans. The 

addition of 8 FTEs in 2013, along with the 7 FTE in 2012, will enable the BLM to reduce the 

processing time of these plans in years where actual Plans of Operations processed is equal to 

the number of plans estimated, and meet the demand for processing plans submitted in years 

such as 2011 when actual Plans of Operations submitted for processing was higher than 

estimated.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page – VIII - 251

Performance Overview

MINING LAW ADMINISTRATION

Measures: 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 3: Manage Non-Energy Mineral Development

Supporting Bureau Measures

Percent of 

Reclamation Bond 

Adequacy. (BUR)

101%

1,170,579,653/

2,160,075,979

95% 

1,323,887,069/ 

1,392,917,134

99% 

1,676,987,850/

1,686,971,962

99%

1,152,508,367/

1,164,149,866

105% 

2,027,497,506/

1,937,402,788

99%

1,152,508,367/

1,164,149,866

98%

1,960,000,000/

2,000,000,000

-1%

98%

1,960,000,000/

2,000,000,000

Average time for 

processing Plans 

of Operation for 

locatable 

minerals. (BUR)

11 mo 11 mo 17 mo 14 mo 22 mo 14 mo 14 mo 0% 14 mo 

Percent of Notices 

and Plans of 

Operations 

inspected. (BUR)

55% 

1,321 / 2,385

46% 

1,347 / 2,924

66% 

2,049/3,090

47% 

1,450/3,050

56% 

1,734/3,092

47% 

1,450/ 3,050

50% 

1,525/ 3,050 +3% 50% 1,525/ 3,050

Number of mining 

notices 

processed. (BUR)

643 544 487 537 603 537 540 +3 540
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page – VIII - 252

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Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page – VIII - 253

BUDGET SCHEDULES

Account Symbol and Title

14X1109

Management of Lands and Resources Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land resources 0011 274 274 268

 Wildlife and fisheries 0012 53 53 52

 Threatened and endangered species 0013 23 23 23

 Recreation management 0014 71 71 70

 Energy and minerals 0015 99 105 104

 Realty and ownership management 0016 99 102 102

 Resource protection 0017 91 92 92

 Transportation and facilities maintenance 0018 73 73 73

 Land and resource information systems 0019 18 18 18

 Workforce and organizational support 0020 149 150 150

 Challenge Cost Share 0026 2 2 2

 National Monuments & NCA 0030 32 32 32

Total direct obligations 0799 984 995 986

 Reimbursable program 0801 24 36 25

 Communication site rental fees 0802 2 2 2

 Mining law administration 0803 39 39 39

 APD Fees 0804 46 33 33

 Cadastral Reimbursable Program 0805 15 15 15

 Inspection Fees 0806 0 0 48

 Grazing Fees 0807 0 0 7

Total reimbursable obligations 0899 126 125 169

Total new obligations 0900 1,110 1,120 1,155

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 165 165 151

 Recoveries of prior year unpaid obligations 1021 36 28 28

 Unobligated balance (total) 1050 201 193 179

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 978 962 952
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page – VIII - 254

BUDGET SCHEDULES

Account Symbol and Title

14X1109

Management of Lands and Resources Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

 Appropriations permanently reduced 1130 -2 0 0

 Approp permanently reduced (Sec 436, HR 2055) 1141 0 -2 0

 Appropriation, discretionary (total) 1160 976 960 952

 Spending authority from offsetting collections, discretionary:

 Offsetting collections (Mining law and Comm Sites) 1700 39 42 42

 Offsetting collections (Economy Act) 1700 30 43 43

 Offsetting collections (APD fees) 1700 45 33 33

 Offsetting collections (Inspection fees) 1700 0 0 48

 Offsetting Collections (Grazing Fees) 1700 0 0 7

 Change in uncollected payments, Federal sources 1701 -16 0 0

 Spending auth from offsetting collections, disc (total) 1750 98 118 173

 Budget authority (total) 1900 1,074 1,078 1,125
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page – VIII - 255

BUDGET SCHEDULES

Account Symbol and Title

14X1109

Management of Lands and Resources Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

Total budgetary resources available 1930 1,275 1,271 1,304

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 165 151 149

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 (gross) 3000 424 417 425

 Uncollected pymts, Fed sources, brought forward, Oct 1 3010 -120 -104 -104

 Obligated balance, start of year (net) 3020 304 313 321

 Obligations incurred, unexpired accounts 3030 1,110 1,120 1,155

 Obligations incurred, expired accounts 3031 2 0 0

 Outlays (gross) 3040 

-

1,081

-

1,084 -1,164

 Change in uncollected pymts, Fed sources, unexpired 3050 16 0 0

 Recoveries of prior year unpaid obligations, unexpired 3080 -36 -28 -28

 Recoveries of prior year unpaid obligations, expired 3081 -2 0 0

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 417 425 388

 Uncollected pymts, Fed sources, end of year 3091 -104 -104 -104

 Obligated balance, end of year (net) 3100 313 321 284

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 1,074 1,078 1,125

 Outlays, gross:

 Outlays from new discretionary authority 4010 887 841 891

 Outlays from discretionary balances 4011 194 243 273

 Outlays, gross (total) 4020 1,081 1,084 1,164

 Offsets against gross budget authority and outlays:

 Offsetting collections (collected) from:

 Federal sources 4030 -43 -43 -43
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page – VIII - 256

BUDGET SCHEDULES

Account Symbol and Title

14X1109

Management of Lands and Resources Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

 Non-Federal sources 4033 -71 -75 -130

 Offsets against gross budget authority and outlays (total) 4040 -114 -118 -173

 Additional offsets against gross budget authority only:

 Change in uncollected pymts, Fed sources, unexpired 4050 16 0 0

 Budget authority, net (discretionary) 4070 976 960 952

 Outlays, net (discretionary) 4080 967 966 991

Budget authority, net (total) 4180 976 960 952

Outlays, net (total) 4190 967 966 991

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 360 365 359

 Other than full-time permanent 1113 23 23 23

 Other personnel compensation 1115 19 19 19

 Total personnel compensation 1119 402 407 401

 Civilian personnel benefits 1121 125 128 123

 Benefits for former personnel 1130 1 0 0

 Travel and transportation of persons 1210 17 15 14

 Transportation of things 1220 9 9 8

 Rental payments to GSA 1231 19 22 24

 Rental payments to others 1232 31 32 34

 Communications, utilities, and miscellaneous charges 1233 22 23 25

 Printing and reproduction 1240 2 2 2

 Advisory and assistance services 1251 16 16 15

 Other services from non-Federal sources 1252 159 159 156

 Other goods and services from Federal sources 1253 43 43 41

 Operation and maintenance of facilities 1254 1 1 1
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page – VIII - 257

BUDGET SCHEDULES

Account Symbol and Title

14X1109

Management of Lands and Resources Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

 Research and development contracts 1255 4 4 4

 Operation and maintenance of equipment 1257 14 14 15

 Supplies and materials 1260 26 25 24

 Equipment 1310 16 16 18

 Land and structures 1320 8 8 9

 Grants, subsidies, and contributions 1410 69 70 71

 Insurance claims and indemnities 1420 0 1 1

 Subtotal, obligations, Direct obligations 1990 984 995 986

Reimbursable obligations:

 Personnel compensation:

 Full-time permanent 2111 62 56 80

 Other than full-time permanent 2113 3 3 3

 Other personnel compensation 2115 3 3 3

 Total personnel compensation 2119 68 62 86

 Civilian personnel benefits 2121 21 20 22

 Travel and transportation of persons 2210 3 3 4

 Transportation of things 2220 1 2 4

 Rental payments to others 2232 3 3 5

 Communications, utilities, and miscellaneous charges 2233 2 3 5

 Advisory and assistance services 2251 1 2 4

 Other services from non-Federal sources 2252 8 8 10

 Other goods and services from Federal sources 2253 7 8 10

 Operation and maintenance of facilities 2254 2 2 3

 Supplies and materials 2260 2 2 2

 Equipment 2310 2 2 4

 Land and structures 2320 1 2 3

 Grants, subsidies, and contributions 2410 5 6 7

 Subtotal, obligations, Reimbursable obligations 2990 126 125 169

 Total new obligations 9999 1,110 1,120 1,155

Character Classification (C) ($ in Millions)

INVESTMENT ACTIVITIES:

 Conduct of research and development:

 Applied research:
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page – VIII - 258

BUDGET SCHEDULES

Account Symbol and Title

14X1109

Management of Lands and Resources Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

 Direct Federal programs:

 Budget Authority 1422-01 10 10 12

 Outlays 1422-02 10 10 12

 Development:

 Direct Federal programs:

 Budget Authority 1432-01 2 2 2

 Outlays 1432-02 2 2 2

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority 2004-01 964 948 940

 Outlays 2004-02 955 954 977

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 5,503 5,619 5,400

Reimbursable civilian full-time equivalent employment 2001 990 795 1061

Allocation account civilian full-time equivalent employment 3001 2,355 2,285 2,180

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources 1000 952,017
Bureau of Land Management 2013 Budget Justifications

Chapter IX - Construction Page IX - 1

CONSTRUCTION

APPROPRIATIONS LANGUAGE

[For construction of buildings, recreation facilities, roads, trails, and appurtenant facilities, 

$3,576,000, to remain available until expended.] (Department of the Interior, Environment, and 

Related Agencies Appropriations Act, 2012.)

AUTHORIZATIONS

The Federal Land Policy 

and Management Act of 

1976 (43 U.S.C. 1701, et 

seq.)

Authorizes the management of the public lands on a 

multiple-use basis.

43 U.S.C. 1762 Provides for the acquisition, construction, and maintenance of 

roads within and near public lands that will permit economic 

timber harvesting and at the same time meet the 

requirements for protection, development, and management 

utilization of other resources.
Bureau of Land Management 2013 Budget Justifications

Chapter IX - Construction Page IX - 2

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

2011 Enacted 2012 Enacted Fixed 

Costs

Internal 

Transfers

Program Changes 

(+/-)

2013 President's 

Budget

Change From 2012 

Enacted

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Construction

Construction 14 4,617 8 3,570 0 0 -8 -3,570 0 0 -8 -3,570

Total, Construction 14 4,617 8 3,570 0 0 -8 -3,570 0 0 -8 -3,570
Bureau of Land Management 2013 Budget Justifications

Chapter IX - Construction Page IX - 3

Activity: Construction 

Subactivity: Construction 

2013 Change

Fixed Costs & Program from

2011 2012 Related Changes Changes Budget 2012 Enacted

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-)

Construction $ 4,617 3,570 0 -3,570 0 -3,570

FTE 14 8 0 -8 0 -8

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Construction program is $0 and 0 FTE, a program change of 

-$3,570,000 and -8 FTE from the 2012 enacted level. 

Program Elimination (-$3,570,000/-8 FTE) – The budget eliminates the Construction 

Appropriation account with a proposed reduction of $3.6 million. Beginning in 2013, 

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

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

appropriation.

PROGRAM OVERVIEW

The Bureau of Land Management’s Construction program provides funds for developing, and 

building safe facilities for visitors and employees that are in compliance with Federal

requirements. The Budget proposes that construction projects will be funded in the newly 

named Deferred Maintenance and Capital Improvements program in the Management of Land 

and Resources appropriation beginning in 2013. 

The Construction program evaluated all prior year projects and ranked them based upon the 

highest priority, that being critical health or safety work, critical resource protection, energy and 

building sustainability, code compliance and mission criticality per the Department’s guidance. 

Any future projects will follow the same criteria within the Management of Lands and Resources 

Appropriation.

2013 PROGRAM PERFORMANCE

In 2013, funding in the Construction Appropriation is eliminated. BLM will not fund any new 

projects within the Construction Appropriation.
Bureau of Land Management 2013 Budget Justifications

Chapter IX – Management of Lands and Resources Page IX - 4

BUDGET SCHEDULES

Account Symbol and Title

14X1110

Construction Line

2011

Act.

2012

Est.

2013

Est.

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Direct program activity 0001 4 6 4

Total new obligations 0900 4 6 4

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 11 12 10

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 5 4 0

 Appropriation, discretionary (total) 1160 5 4 0

 Discretionary, Appropriations Committee

 Policy Outlays:

 Baseline Outlays:

 Discretionary, Emergency Appropriation for Economic 

Recovery, Appropriations Committee

 Policy Outlays:

 Baseline Outlays:

Total budgetary resources available 1930 16 16 10

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 12 10 6

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 (gross) 3000 78 19 7

 Obligations incurred, unexpired accounts 3030 4 6 4

 Obligations incurred, expired accounts 3031 2 0 0

 Outlays (gross) 3040 -63 -18 -5

 Recoveries of prior year unpaid obligations, expired 3081 -2 0 0

 Obligated balance, end of year (net):
Bureau of Land Management 2013 Budget Justifications

Chapter IX – Management of Lands and Resources Page IX - 5

BUDGET SCHEDULES

Account Symbol and Title

14X1110

Construction Line

2011

Act.

2012

Est.

2013

Est.

Program and Financing (P) ($ in Millions)

 Unpaid obligations, end of year (gross) 3090 19 7 6

 Obligated balance, end of year (net) 3100 19 7 6

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 5 4 0

 Outlays, gross:

 Outlays from new discretionary authority 4010 2 1 0

 Outlays from discretionary balances 4011 61 17 5

 Outlays, gross (total) 4020 63 18 5

 Budget authority, net (discretionary) 4070 5 4 0

 Outlays, net (discretionary) 4080 63 18 5

Budget authority, net (total) 4180 5 4 0

Outlays, net (total) 4190 63 18 5

Object Classification (O) ($ in Millions)

Direct obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 1111 1 1 0

 Other services from non-Federal sources 1252 1 1 1

 Other goods and services from Federal sources 1253 1 2 2

 Land and structures 1320 1 2 1

 Total new obligations 9999 4 6 4

Character Classification (C) ($ in Millions)

INVESTMENT ACTIVITIES:

 Physical assets:

 Other construction and rehabilitation:

 Direct federal programs:

 Budget Authority 1314-01 5 4 0

 Outlays 1314-02 63 18 5

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 14 8 0
Bureau of Land Management 2013 Budget Justifications

Chapter IX – Management of Lands and Resources Page IX - 6

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Bureau of Land Management 2013 Budget Justifications

hapter X – Land Acquisition Page X - 1

LAND ACQUISITION

APPROPRIATIONS LANGUAGE

For expenses necessary to carry out sections 205, 206, and 318(d) of Public Law 94-579, 

including administrative expenses and acquisition of lands or waters, or interests therein, 

[$22,380,000] $33,575,000, 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, 2012.)

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.
Bureau of Land Management 2013 Budget Justifications

hapter X – Land Acquisition Page X - 2

National Trails System 

Act of 1968, as amended 

(16 U.S.C. 1241-1249)

Authorizes the Secretary to acquire lands or interests in lands 

included in the right-of-way selected for a National Historic, 

National Recreation, or National Scenic Trail; by written 

cooperative agreement, donation, purchase (with donated or 

appropriated funds), or exchange.

Other Other acts such as, the King Range National Conservation 

Area Act of 1970, as amended (16 U.S.C. 460y); San Pedro 

Riparian National Conservation Area Act, in Arizona (16 U.S.C. 

460xx); Arkansas-Idaho Land Exchange Act of 1992 (P.L. 102-

584); Utah School Lands Act (P.L. 103-93); Steens Mountain 

Cooperative Management and Protection Act of 2000 (16 

U.S.C. 460nnn, P.L. 106-399; and California Desert Protection 

Act of 1994 (P.L. 103-433), authorize the Secretary to enter 

into acquisitions, including purchase, donation, land exchange.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 3

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

2011 Enacted 2012 Enacted Fixed 

Costs

Internal 

Transfers

Program Changes 

(+/-)

2013 President's 

Budget

Change From 2012 

Enacted

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Land Acquisition

Land Acquisition 0 18,584 0 18,969 0 0 0 +10,108 0 29,077 0 +10,108

Inholding, Emergencies & Hardships 0 1,497 0 1,498 0 0 0 0 0 1,498 0 0

Acquisition Mgt. 11 1,875 11 1,877 +17 0 0 +1,106 11 3,000 0 +1,123

Total, Land Acquisition 11 21,956 11 22,344 +17 0 0 +11,214 11 33,575 0 +11,231

JUSTIFICATION OF FIXED COSTS

(Dollars in Thousands)

Pay Raise and Pay-Related Changes 2011

2012 

Change

2013 

Change

Calendar Year 2010 Quarter 4 

-

Calendar Year 2011 Quarters 1-3 

-

Calendar Year 2011 Quarter 4 0 

Calendar Year 2012 Quarters 1-3 0 

Calendar Year 2012 Quarter 4 0 

Calendar Year 2013 Quarters 1-3 +5 

Non-Foreign Area COLA Adjustment to Locality Pay 0 

Change in Number of Paid Days +6 

Employer Share of Federal Health Benefit Plans [+6] +6 

 Numbers in brackets indicate amounts absorbed by the agency in FY 2012. 
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 4

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Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 5

Subactivity 2011

Actual

2012

Enacted

2013

Change

from

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes

(+/-)

Program

Changes

(+/-)

Budget

Request

Land Acquisition $ 18,584 18,969 0 +10,108 29,077 +10,108

FTE 0 0 0 0 0 +0

Acquisition Mgmt. $ 1,875 1,877 +17 +1,106 3,000 +1,123

FTE 11 11 0 0 11 0

Emergencies & 

Hardships $ 1,497 1,498 0 0 1,498 0

FTE 0 0 0 0 0 0

Total 

Appropriated $ 21,956 22,344 +17 +11,214 33,575 +11,231

FTE 11 11 0 0 11 0

The 2013 BLM budget proposes to fund BLM’s Land Acquisition program with an appropriation 

from the Land and Water Conservation Fund at a total level of $33,575,000 and 11 FTE, a net 

program change of +$11,214,000 and 0 FTE from the 2012 enacted level. 

ACTIVITY DESCRIPTION

The BLM is authorized to acquire intermingled and adjacent non-Federal lands through 

purchase, exchange, and donation for specified public benefits. Consolidation of the public 

lands through land acquisition increases management efficiency in pursuing land management 

goals such as maintaining open space, providing opportunities for environmentally responsible 

recreation, preserving natural and cultural heritage resources, restoring at-risk botanical, 

fisheries and wildlife resources, and maintaining functioning ecosystems. The BLM’s Land 

Acquisition program utilizes Land and Water Conservation Fund (LWCF) monies for Land 

Acquisition, Inholding, Emergency and Hardship, and Acquisition Management. 

In addition to acquiring land by purchase with LWCF appropriated funds, the BLM acquires land 

by exchange. When an exchange is proposed, every attempt is made to equalize values 

between the lands coming into Federal ownership and the lands leaving Federal ownership. In 

those instances where land values are not equal, the BLM attempts to equalize land values by 

decreasing or increasing the land leaving Federal ownership. In certain instances where values 

are not equal and there is no available land in Federal ownership to equalize values, a cash 

payment can be made to the exchange proponent. This cash payment, an “equalization 

payment” cannot exceed 25 percent of the difference between the values of the lands coming 

into Federal ownership and the lands leaving Federal ownership. 

Activity: Land Acquisition
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 6

Major Components of BLM Land Acquisition Program

2011 

Actual

2012 

Enacted

2013 

Budget 

Request

Land Acquisition - Core Projects 18,584 18,970 20,594

Land Acquisition - Collaborative Projects 0 0 5,984

Land Acquisition - Hunter and Angler Access 0 0 2,500

Total Land Acquisition Project Funding 18,584 18,970 29,077

Acquisition Management 1,875 1,877 3,000

Emergencies and Hardships 1,497 1,498 1,498

Total Appropriated 21,956 22,344 33,575

Comment: Components of "Total Land Acquisition Project Funding" above will not total 29,077 because 

of rounding factors
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 7

Activity: Land Acquisition

Subactivity: Land Acquisition

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Land Acquisition ($000) 18,584 18,969 0 +10,108 29,077 +10,108

FTE 0 0 0 0 0 0

Summary of 2013 Program Changes for Land Acquisition

Request Component ($000) FTE

Program Changes:

• Collaborative Landscape Acquisition Projects +5,984 0

• Acquire Hunting and Fishing Access +2,500 0

• Core Projects (2013 total is $20,593,000) +1,624 0

TOTAL, Program Changes +10,108 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Land Acquisition program is $29,077,000 and 0 FTE, a net 

program change of $10,108,000 and 0 FTE from the 2012 enacted level.

Collaborative Landscape Acquisition Projects (+$5,984,000) – In 2013, the Department of 

the Interior proposes to combine a portion of the funding allocated from the LWCF to each of the 

Bureaus towards a collaborative acquisition effort that will focus acquisition projects from each 

Bureau in high priority landscapes to leverage acquisition funding towards larger-scale goals of 

collaborative landscape management. These efforts were partially initiated in response to 

Congressional direction to the Department and the Forest Service to use LWCF land acquisition 

funds jointly and more strategically to protect contiguous landscapes and meet shared 

conservation goals. With this funding, BLM will acquire 2 projects in 2 of the Department’s 3 

high-priority landscapes. BLM’s core acquisition program is aligned with the larger Departmental 

collaborative initiative, as 97 percent of BLM’s acquisitions in its core program in 2013 will occur 

in the Department designated collaborative priority landscapes. 

Acquire Hunting and Fishing Access (+$2,500,000) – The access of hunters and anglers to 

the public lands is often frustrated by complicated, “checker-board” land ownership patterns. 

Acquiring lands, or interest in lands, for hunting and fishing access can alleviate some of these 

challenges and provide better access to valuable public recreation opportunities.

General Program Increase (+$1,624,000) – This funding increase will go towards high priority 

acquisition efforts in BLM’s core land acquisition program. The 2013 total request of 

$20,593,000 for core land acquisition projects will enable the BLM to complete a total of 10

high-priority, line-item land acquisition projects in 7 states. 
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 8

PROGRAM OVERVIEW

The Land Acquisition program promotes the conservation of natural landscapes and resources 

by consolidating public lands through purchase, exchange and donation to increase 

management efficiency and preserve areas of natural, cultural, and recreational importance. 

Acquisition projects occur within or adjacent to nationally-designated management units, 

including National Monuments, National Conservation Areas, Wilderness, National Wild and 

Scenic Rivers, National Scenic Trails, and National Historic Trails, as well as in BLM-designated 

Areas of Critical Environmental Concern and Special Recreation Management Areas. Land 

acquisition funding is also necessary to acquire small parcels of land and/or access easements 

through these lands to provide public access to “landlocked” BLM lands. The BLM estimates 23 

million acres (or 9 percent) of BLM-managed public lands lack public access or have inadequate 

public access, primarily due to checkerboard land ownership patterns. Securing and improving 

public access to these lands will serve various recreational activities, including hunting and 

fishing. 

The Land Acquisition program improves river and riparian conservation and restoration;

conserves and protects wildlife habitat; preserves natural and cultural heritage resources;

provides opportunities for environmentally responsible recreation; restores at-risk resources;

and maintains functioning ecosystems through land acquisition. Communication, cooperation, 

and consultation with local communities and interested parties are key elements of the Land 

Acquisition program. Funds for the Land Acquisition program are derived from the Land and 

Water Conservation Fund (LWCF). 

BLM also has funding from other sources outside the Land Acquisition appropriation, such as

from the Southern Nevada Public Land Management Act and other land sale authorizations. 

The Budget includes a legislative proposal to reauthorize the Federal Land Transaction 

Facilitation Act and allow lands identified as suitable for disposal in recent land use plans to be 

sold using the FLTFA authority. FLTFA sales revenues would continue to be used to fund the 

acquisition of environmentally sensitive lands and the administrative costs associated with 

conducting sales, which would provide funding for land acquisition as well. These legal 

authorities are described in the Lands and Realty Management chapter, and various land sale 

accounts are described in the Permanent Operation Funds chapter.

2013 PROGRAM PERFORMANCE

In 2013, the BLM has plans for 12 acquisition projects in nine 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 2013 are listed in the tables on pages VI-12 and 16. 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 bureau and Departmental leadership to meet 

the high priority programmatic needs during fiscal year 2013. 
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 9

Performance Overview

LAND ACQUISITION

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Longterm 

Target

2016

Mission Area 5: Building a 21st Century Department of the Interior 

Goal 5: Improving Acquisition & Real Property Management

Strategy 1: Effective Management of Facilities

Supporting Bureau Measure

Increase the number and acreage of 

land exchanges and acquisitions to 

improve land tenure distribution. 

(BUR)

52,990 17,098 70,432 60,546 36,910 22,634 21,502 -1,132 21,502
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 10

Collaborative Landscape Planning at the U.S. Department of the Interior

The 2013 Federal Land Acquisition program builds on efforts started in 2011 and 2012 to 

develop a program that supports strategic interagency landscape-scale conservation projects,

while continuing to meet agency-specific programmatic needs. These efforts were partially 

initiated in response to Congressional direction to the Department and the Forest Service to use 

LWCF land acquisition funds jointly and more strategically to protect contiguous landscapes and 

meet shared conservation goals. Interior bureaus collaborated extensively with the U.S. Forest 

Service to develop a process to coordinate land acquisition planning with government and local 

community partners to achieve the highest priority shared conservation goals more effectively. 

The CLP process is designed to: 

• Use the LWCF to incentivize collaborative planning for measurable outcomes at the 

landscape scale; 

• Invest LWCF resources in some of the most ecologically important landscapes; and 

• Invest in projects that have a clear strategy to reach shared goals grounded in sciencebased planning, are driven by and responsive to local community initiatives, and will 

make the most efficient use of federal funds.

For 2013, Interior and U.S. Department of Agriculture are initiating the CLP process with a 

combined request of $108.6 million. This includes a request of $83.6 million among the three 

Interior bureaus and the remaining $25.0 million by the Forest Service. The 2013 CLP projects 

were evaluated by a Technical Advisory Committee (TAC) made up of BLM, FWS, NPS, and FS 

staff, and were rated according to merit based criteria in the following categories: 

• Process – ensure proposals are built through Federal agency and local stakeholder 

collaboration and make efficient use of Federal funding. Stakeholder commitment to 

proposals, including broad-based community support, resources, or funding, were 

considered.

• Outcomes – ensure Federal resources are targeted to achieve important biological, 

recreational, cultural and socio-economic outcomes, including improving access to 

public lands.

• Urgency – ensure funding is focused on outcomes that may be lost today if no action is 

taken or that are particularly achievable today.

• Contribution to national priorities – ensure local proposals are important contributors to 

the highest priority national conservation goals.

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, three ecosystems were selected for inclusion in the 2013 budget including: the 

Northern Rockies and the Florida-Georgia Longleaf Initiative landscapes, as well as an initial 

investment in the Greater Yellowstone landscape. 

Investing now in these ecologically important but threatened landscapes will ensure that they 

remain resilient in the face of development pressures and global change. Smart investment in 

strategic conservation in these landscapes will prevent further ecosystem decline or collapse, 

which is expected to preclude the need for future investments in restoration. The proposed 

federal investments in these landscapes will additionally leverage significant private 
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 11

commitments to land and water conservation in the Crown of the Continent and Longleaf Pine 

ecosystems.

In the Northern Rockies landscape, BLM, FWS, NPS, and FS aim to build resiliency in 

ecological systems and communities, so that, even as climate conditions change, this 

collaborative area will continue to support a full range of native biodiversity. Building ecological 

resiliency includes maintaining intact, interconnected landscapes and restoring fragmented or 

degraded habitats. The agencies have engaged in longstanding collaborations with nonGovernment Organization partners, local community groups such as the Blackfoot Challenge 

and Rocky Mountain Front Landowner Advisory Group, and State and county government 

officials, to tailor a Federal conservation strategy and acquisition program that achieves a 

synergy between private rights, open space, traditional land uses and conservation. This shared 

vision, developed over years of collaboration, includes maintaining working ranches and forests 

by acquiring conservation easements as well as acquiring lands in fee that will provide public 

access and enjoyment.

The planned acquisitions will contribute to species conservation for an array of threatened, 

endangered, and sensitive species. The landscape, which falls within the greater Crown of the 

Continent ecosystem and serves as the southern “bookend” for the Yellowstone to Yukon 

Conservation Initiative, is home to a number of large game species, including antelope, elk, 

deer, and moose which range throughout the acquisition area, and which can be hunted within 

some fee ownership acquisitions. Hunting provides recreational opportunities and vital revenue 

to local communities. The Federal acquisition projects will complement the conservation goals 

of State wildlife action plans as well as other conservation plans including Partners in Flight, 

Endangered Species Recovery Plans, Forest Management Plans and agency general 

management and Interior and Agriculture departmental level strategic plans.

Tracts identified in the Florida-Georgia Longleaf Initiative landscape are crucial to the 

ecological well -being and recovery of the diminishing longleaf pine ecosystem in the South. 

Long leaf pines, which once covered up to 98 million acres of the Southeast, have been 

reduced to three million acres, much of it in poor condition. Collaborative regional effort to 

address this decline has been underway for over 15 years, with strong public-private 

partnerships like the Longleaf Alliance bringing together private landowners, forest industries, 

state and federal agencies, conservation groups and researchers to work on collaborative 

solutions. Federal agencies drew from Florida wildlife habitat gap analyses, recovery plans, 

other Florida and Federal natural resource assessments and initiatives, and local government 

and general public input, to develop a plan for land acquisition that targets the most critical 

conservation needs. Based on this plan, State and local governments and conservation nonprofit groups such as The Nature Conservancy worked closely with Federal agencies to secure 

these tracts to allow sufficient time for the United States to acquire them. 

Although many threatened and endangered species require a longleaf pine ecosystem to 

survive, the endangered red-cockaded woodpecker (RCW) is the keystone species for 

ecosystem. The BLM, FWS, FS, and the State of Florida have collaborated over the last 20 

years to dramatically grow the RCW populations and promote the recovery of the longleaf pine 

ecosystem through the RCW Southern Range Translocation Cooperative, and to protect and 

expand critical wildlife areas and the Florida National Scenic Trail corridor.

The acquisitions funded in this request address the most critical needs of each agency in 

support of our shared priority of longleaf pine ecosystem conservation, restoration, and 

Endangered and Threatened species recovery. The lands selected for this proposal are the 
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 12

highest priority for each unit to protect critical habitat, improve management, protect private 

lands from wildfire, and leverage the efforts of conservation partners to secure these tracts for 

Federal protection. 

The Greater Yellowstone Coordinating Committee was formed in 1964 to provide a coordinated 

perspective for the ecological integrity and outstanding natural resources of the Greater 

Yellowstone landscape. This longstanding perspective allows the collaborating Federal 

agencies to work with NGO partners, local community groups such as the Jackson Hole 

Conservation Alliance and Greater Yellowstone Coalition, and State and county government 

officials, to design a Federal acquisition program that will complement existing landownership, 

honor traditional land uses and conserve this unique landscape for future generations. 

The collective vision includes acquisition of land and conservation easements that will contribute 

to species conservation and will secure habitat connectivity for large game species including 

elk, deer and moose. The network of protected lands in this ecosystem supports a robust local 

tourism economy which draws millions of tourists annually for outdoor recreation, hunting and 

angling. Development of unprotected lands in this area is an urgent threat to the landscape’s 

ecological integrity and to the rural character of the landscape which underpins the area’s 

tourism economy.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 13

FY 2013 Department of the Interior LWCF Collaborative Project Request List

Bureau Unit Parcel Name Cost (000's)

Longleaf Pine: 

 Florida-Georgia Longleaf Initiative

BLM Lathrop Bayou Habitat Management Area St. Joe Timberlands $ 412 

FWS St. Marks National Wildlife Refuge Sam Shine Foundation $ 17,514 

FWS St. Marks National Wildlife Refuge The Nature Conservancy $ 15,398

FWS Okefenokee National Wildlife Refuge Forest Investment Associates $ 5,233

FWS Okefenokee National Wildlife Refuge The Conservation Fund $ 8,403

USFS Apalachicola National Forest / Osceola National Forest $ 6,400

Crown of the Continent:

 Northern Rockies

BLM

Blackfoot River Special Resource Management Area/Lewis & Clark National 

Trail The Nature Conservancy $ 4,572 

BLM

Blackfoot River Special Resource Management Area/Lewis & Clark National 

Trail Private Landowner $ 1,000 

NPS Glacier National Park Harrison Creek $ 1,323

FWS

Rocky Mountain Front Conservation Area (CA) , Blackfoot Valley CA , Swan Valley 

CA Private Landowner (Parcel #1) $ 1,008 

FWS

Rocky Mountain Front Conservation Area (CA) , Blackfoot Valley CA , Swan Valley 

CA Private Landowner (Parcel #2) $ 6,143

FWS

Rocky Mountain Front Conservation Area (CA) , Blackfoot Valley CA , Swan Valley 

CA Private Landowner (Parcel #3) $ 1,170 

FWS

Rocky Mountain Front Conservation Area (CA) , Blackfoot Valley CA , Swan Valley 

CA Private Landowner (Parcel #4) $ 3,360 

FWS

Rocky Mountain Front Conservation Area (CA) , Blackfoot Valley CA , Swan Valley 

CA Private Landowner (Parcel #5) $ 1,425 

FWS

Rocky Mountain Front Conservation Area (CA) , Blackfoot Valley CA , Swan Valley 

CA Private Landowner (Parcel #6) $ 927

FWS

Rocky Mountain Front Conservation Area (CA) , Blackfoot Valley CA , Swan Valley 

CA Private Landowner (Parcel #7) $ 310 

FWS

Rocky Mountain Front Conservation Area (CA) , Blackfoot Valley CA , Swan Valley 

CA The Nature Conservancy $ 5,400 

USFS Montana Legacy Completion - Lolo/Flathead NF $ 14,800 

 Greater Yellowstone

NPS Grand Teton National Park Resor Ranch $ 2,000 

NPS Grand Teton National Park State of Wyoming Lands $ 8,000

USFS Bridger-Teton National Forest / Caribou-Targhee National Forest $ 3,800 
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 14

Bureau of Land Management

Land and Water Conservation Fund

2013 National Project Priorities (Collaborative)

State Project Amount ($)

MT Blackfoot River SRMA/Lewis and Clark National Historic Trail................... 5,572,000

FL Lathrop Bayou HMA................................................................................... 412,000

Total, BLM Land Acquisition (Collaborative) ....................... 5,984,000

Acronyms: HMA = Habitat Management Area, SRMA = Special Recreation Management Area
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 15
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 16

Blackfoot River Special Recreation Management Area

Lewis and Clark National Historic Trail

MONTANA Missoula and Powell Counties Congressional District: 1

Location Western Montana, 20 miles east of 

Missoula.

Acquired to Date

Method Acres* Cost ($)

Purchase 12,363 15,102,000

Purpose Protect exceptional biological diversity, 

wildlife habitat and rural landscapes from 

the impacts of residential subdivision. 

Preservation of the Lewis and Clark 

National Historic Trail (NHT) corridor.

Exchange2 11,730 21,587,000

Donation2 0 0

Other 0 0

Partners 112,800 71,900,000

Proposed for FY 2013 (Collaborative)

Method Acres* Cost ($)

Purchase

Opportunities

Funding request completes an ongoing 

phased acquisition of property 

purchased and held by the partner for 

conveyance to federal agency partners.

Purchase 4,620 5,572,000

Pending Future Action

Method Acres* Cost ($)

Pending 0 0

*Includes fee and conservation easement interest

2

For donation and exchange “cost” = “value”

Partner The Nature Conservancy.

Cooperators U.S. Fish and Wildlife Service, U.S. Forest Service, Montana Department of Fish, 

Wildlife and Parks, Montana Department of Natural Resource and Conservation, 

Blackfoot Challenge, Montana Land Reliance, Five Valleys Land Trust.

Project 

Description

The Blackfoot River watershed is celebrated nationally and treasured locally for its 

outstanding values – legendary fishing and floating, threatened and endangered 

species and big game habitat, and unspoiled natural beauty. The Blackfoot River 

watershed occupies a critical location in the Northern Continental Divide Ecosystem, 

serving as the southern “bookend” for the Yellowstone to Yukon (Y2Y) Conservation 

Initiative. The watershed serves as a buffer and linkage zone for wildlife moving in and 

out of the Bob Marshall/ Scapegoat Wilderness Complex, along the Continental Divide 

and between the Clark Fork River drainage and the Garnet Range.

The Blackfoot system possesses exceptional wetlands, riparian, grasslands, and 

forestland vegetation associations. These ecosystems possess exceptional 

biodiversity and high scenic value. An active partnership with the Montana 

Department of Fish, Wildlife and Parks is working to restore Bull trout (T&E listed 

species) habitat. Traversing the breadth of Montana, the Lewis and Clark NHT Trail 

crosses lands with some of the richest resources and diversity in the region. In July 

1806 Captain Meriwether Lewis and nine members of the Corps of Discovery followed 

this course of the Blackfoot River on the return leg of their expedition.

The proposed acquisition, supported by the Montana Department of Fish, Wildlife and 

Parks is a component of The Nature Conservancy’s broader Montana Legacy Project 

and is the final TNC-BLM acquisition in the project area.

O&M Cost Estimated start up cost: $ 5,000. Estimated annual maintenance: $1,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 17

Lathrop Bayou Habitat Management Area

FLORIDA Bay County Congressional District: 2

Location Western Florida, 25 miles east of 

Panama City. Four small islands 

collectively known as Lathrop Bayou.

Acquired to Date

Method Acres* Cost ($)

Purchase 0 0

Purpose Protect habitat for the endangered redcockaded woodpecker (RCW) and 

preserve the longleaf pine ecosystem

from rural residential subdivision.

Exchange2 0 0

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY 2013 (Collaborative)

Method Acres* Cost ($)

Purchase

Opportunities

The property is currently available from 

St. Joe Timberlands. Acquisition of 

these parcels would provide an 

opportunity to consolidate land 

ownership and further the protection of 

the RCW and longleaf pine ecosystem.

Purchase 206 412,000

Pending Future Action

Method Acres* Cost ($)

Pending 0 0

*Includes fee and conservation easement interest

2

For donation and exchange “cost” = “value”

Partner The Nature Conservancy.

Cooperators U.S. Fish and Wildlife Service, U.S. Forest Service, Department of Defense, St. Joe 

Timberland, Genecov Group and State of Florida.

Project 

Description

At the 189-acre Lathrop Bayou Habitat Management Area (HMA), BLM is working with 

private landowners to manage a relic longleaf pine forest which supports breeding redcockaded woodpeckers and 13 Federally and State listed-plant species. Prescribed 

burns and careful hand thinning of encroaching slash pine is improving habitat for 

these species. The red-cockaded woodpecker has been the focus of conservation

efforts even before the passing of the Endangered Species Act in 1970.

The federally endangered red-cockaded woodpecker is the keystone species of the 

longleaf pine ecosystem. Over the last 100 years agricultural conversion of forested 

lands, timber product harvesting, commercial, industrial, and rural residential 

development, and periodic infestations have significantly impacted the longleaf pine 

ecosystem. Once encompassing up to 98 million acres in the southeastern United 

States, forested lands now number approximately 3 million acres, much of it in poor 

condition. The St. Marks National Wildlife Refuge and Apalachicola National Forest 

have been working cooperatively for more than 30 years to recover the RCW and 

restore the ecosystem. The partnership expanded to Okefenokee National Wildlife 

Refuge, Osceola National Forest and Lathrop Bayou HMA during the last 20 years to 

dramatically grow the RCW populations and promote the recovery of the longleaf pine 

ecosystem through the RCW Southern Range Translocation Cooperative.

In October 2007, nineteen artificial cavities were installed at Lathrop Bayou to provide

additional nesting and roosting opportunities for the red-cockaded woodpecker. The 

preferred alternative in the draft Southeastern States Resource Management Plan 

designates Lathrop Bayou as an Area of Critical Environmental Concern. Acquisition 

of these lands would allow BLM to effectively manage the area to maintain and 

increase the population of the endangered RCW and conserve the longleaf pine 

ecosystem.

O&M Cost Estimated start up cost: $ 5,000. Estimated annual maintenance: $1,500.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 18

Bureau of Land Management

Land and Water Conservation Fund

2013 National Project Priorities (Core)

Rank State Project Amount ($)

1 AZ .......... Ironwood Forest National Monument........................................... 1,000,000

2 CA.......... Carrizo Plain National Monument................................................ 1,200,000

3 CO.......... Dominguez-Escalante National Conservation Area ..................... 575,000

4 ID ........... Upper Snake/South Fork Snake River ACEC/SRMA................... 1,750,000

5 UT .......... Red Cliffs National Conservation Area ........................................ 4,000,000

6 OR.......... Cascade-Siskiyou National Monument........................................ 2,000,000

7 CA.......... California Wilderness .................................................................. 3,068,000

8 CA.......... California Coastal National Monument ........................................ 4,500,000

9 OR.......... Sandy River ACEC/Oregon National Historic Trail ...................... 2,000,000

10 NV.......... Red Rock Canyon National Conservation Area........................... 500,000

Subtotal, Line Item Projects (Core)..................................... 20,593,000

Hunter and Angler Access........................................................... 2,500,000

Acronyms: ACEC = Area of Critical Environmental Concern, SRMA = Special Recreation Management Area
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 19
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 20

Ironwood Forest National Monument

ARIZONA Pima County Congressional District: 7

Location Southeast Arizona, approximately 25 

miles northwest of downtown Tucson.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 0

Purpose Consolidate landownership, prevent 

residential development and mining and 

provide long-term protection of 

ecosystem, open space, species and 

watershed values within the Monument.

Exchange2 41 24,500

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

Several inholding parcels are currently 

available from highly-motivated willing 

sellers. Acquisition of these parcels 

would provide an opportunity to 

consolidate land ownership and further 

the protection of Monument objects.

Purchase 459 1,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 6,362 19,250,000 1

Includes fee and conservation easement interest 2

For donation and exchange “cost” = “value”

Partner Arizona Land and Water Trust.

Cooperators Tohono O’odham Nation, Pima County, Friends of Ironwood Forest.

Project 

Description

Taking its name from one of the longest living trees in the Arizona desert, the 129,000-

acre Ironwood Forest National Monument is a true Sonoran Desert showcase. The 

Ironwood is a very long-lived tree, with some specimens estimated to be more than 

800 years old. Ironwood is a keystone species because it provides a nursery 

environment of shade and protection that enables young seedlings of other species to 

become established despite the harsh desert climate, where night-time lows can 

exceed 105°F. Studies by the Arizona-Sonora Desert Museum have documented 560 

plant species within the Monument. Resident birdwatchers have documented more 

than 80 species of migratory and non-migratory birds. The Monument lies within the 

scenic viewshed of the 1,210-mile Juan Bautista de Anza National Historic Trail, which 

skirts its eastern boundary.

The proposal involves the acquisition of two properties from highly-motivated willing 

sellers. The parcels have been proposed for residential development, however a 

reduced demand for residential units now provides an opportunity to eliminate this 

potential threat.

The Cocoraque parcel is within the Cocoraque Butte Archeological District which was 

listed on the National Register of Historic Places in October 1975. More than 

200 Hohokam and Paleoindian archaeological sites dated between 600 and 1450 

(including many petroglyphs) have been identified on this parcel and within the 

Monument.

The Waterman parcel provides habitat to a small population of Nichol Turk’s Head 

cactus, occurring in localized limestone-rich areas. The Nichol Turk’s Head is a very 

slow-growing cactus, taking 10 years to reach a height of 2-3 inches. It was listed as 

an endangered plant in 1976 and has an approved recovery plan.

O&M Cost Estimated “start up” cost: $5,000. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 21

Carrizo Plain National Monument

CALIFORNIA Kern and San Luis Obispo County Congressional District: 22

Location Central California, 60 miles west of 

Bakersfield.

Acquired to Date

Method Acres1 Cost ($)

Purchase 92,000 20,945,000

Purpose Acquire private inholdings within the 

Carrizo Plain National Monument to 

consolidate ownership and protect 

outstanding biological and cultural 

values.

Exchange2 20,400 3,225,000

Donation2 1,700 755,000

Other 0 0

Partners 9,900 1,935,000

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

Two inholding parcels facing immediate 

threat from commercial, industrial, rural 

residential and suburban development, 

and unregulated off highway vehicle use.

Purchase 1,200 1,200,000

Pending Future Action

Method Acres1 Cost ($)

Pending 22,800 12,800,000 1

Includes fee and conservation easement interest

2

For donation and exchange “cost” = “value”

Partners Sequoia Rivers Land Trust, The Nature Conservancy.

Cooperators Bureau of Reclamation, U.S. Fish and Wildlife Service, California Department of Fish 

and Game, Friends of Carrizo Plain, Southern Sierra Archaeological Society, Carrizo 

Plain Native American Advisory Committee, Resources Legacy Fund Foundation.

Project 

Description

The 250,000-acre Carrizo Plain National Monument, a majestic grassland preserve 

ringed by scenic mountain ridges, contains the last remaining undeveloped remnant of 

the San Joaquin Valley ecosystem. It provides critical contiguous habitat for one of the 

largest assemblages of threatened and endangered species surviving on any public 

lands in the United States, including the blunt-nosed leopard lizard, San Joaquin kit 

fox, giant kangaroo rat, Kern primrose sphinx moth, longhorn fairy shrimp, vernal pool 

fairy shrimp, California jewelflower, San Joaquin wooly threads, and the San Joaquin 

antelope squirrel. Within the vast expanse of the Carrizo Plain lies Painted Rock, an 

important ceremonial site of the Chumash people that rises majestically from the 

surrounding grassland. In addition, the Monument contains other world-class 

archaeological sites, which are part of a current nomination as a National Historic 

Landmark. Soda Lake, a glistening bed of white salt in the dry summer, and the 

largest alkali wetland remaining in Southern California, provides important habitat for 

migratory birds during the winter. Those interested in geology can view one of the most 

spectacular sections of the 800-mile long San Andreas Fault, with its complex 

corrugated topography, along the eastern edge of the Plain. 

The Monument’s diversity and proximity to over 20 million people living in Southern 

and Central California attracts over 75,000 visitors annually who come to enjoy a 

variety of recreational activities. Those stopping at the Goodwin Education Center or 

taking guided tours to Painted Rock or the San Andreas Fault can share in the rich 

history of the Carrizo Plain and learn about its unique plant and animal life.

The adjoining First Solar parcels are within the northern quadrant of the Monument 

and are nearly surrounded by BLM-managed public land.

O&M Cost Estimated “start up” cost: $5,000. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 22

Dominguez-Escalante National Conservation Area

COLORADO Delta , Mesa, and Montrose Counties Congressional District: 3

Location West Central Colorado, approximately 

eight miles south of Grand Junction.

Acquired to Date

Method Acres1 Cost ($)

Purchase 423 94,000

Purpose Acquisition of critical inholdings to 

preserve habitat for threatened and 

endangered plants and fish, protect 

cultural, riparian and scenic values, and 

enhance recreational opportunities. 

Exchange2 0 0

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

Parcels of private land are available for 

purchase from willing sellers. Both 

parcels provide excellent wildlife and 

rare plant habitat, as well as historically 

significant heritage sites and 

opportunities for recreation.

Purchase 304 575,000

Pending Future Action

Method Acres1 Cost ($)

Pending 7,696 15,424,000 1

Includes fee and conservation easement interest

2

For donation and exchange “cost” = “value”

Partner Western Rivers Conservancy.

Cooperators U.S. Fish and Wildlife Service, Colorado Division of Wildlife, Colorado Environmental 

Coalition, American Rivers, Audubon Society, Colorado River Outfitters Association, 

Trout Unlimited.

Project 

Description

The 210,000-acre Dominguez-Escalante National Conservation Area (NCA), including 

the 66,000-acre Dominguez Canyon Wilderness, was established to protect unique 

geological, cultural, paleontological, wilderness, recreation, wildlife, riparian, and 

scenic values. Spectacular red rock canyons and cliffs covered in pinion juniper 

forests hold geological and paleontological resources spanning 600 million years, as 

well as many cultural and historic sites. This vast area, dominated by the 

Uncompahgre Plateau’s Escalante, Cottonwood, Big Dominguez and Little Dominguez 

Creeks drain into the 30 miles of the Gunnison River that flow through the NCA. The 

Gunnison River is designated critical habitat for two threatened fish species. 

Threatened plant species, and rare and diverse wildlife call the area home, including 

desert bighorn sheep, mule deer, golden eagle, mountain lion, black bear, and elk. 

The Massey parcel includes two miles of an alluvial bench along the Gunnison River. 

This section of the Gunnison River is listed as critical habitat for two federally 

endangered fish species. The parcel contains visible remnants of the Denver & Rio 

Grande Western railroad, a site of historical significance, as well as other riparian and 

scenic resource values.

The American Mountain Men parcel lies within Gibber Gulch, a magnificent, red-rock 

canyon. The convergence of four major habitat types on the parcel, as well as the 

presence of naturally-occurring seeps and woodland riparian corridors, provides 

excellent wildlife habitat and potential habitat for rare plant communities. Heritage 

resources on the property provide excellent opportunities for tourism, camping and 

self-guided interpretation.

O&M Cost Estimated “start up” cost: $5,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 23

Upper Snake/South Fork Snake River 

Area of Critical Environmental Concern/Special Recreation Management Area

IDAHO Bonneville, Fremont, Jefferson,

and Madison Counties Congressional District: 2

Location Southeast Idaho, 20 miles northeast of 

Idaho Falls.

Acquired to Date

Method Acres1 Cost ($)

Purchase 8,399 24,201,407

Purpose Conserve and enhance significant 

scenic, recreational, and wildlife 

resources within the Snake River 

corridors, predominately through the 

acquisition of conservation easements.

Exchange2 40 40,000

Donation2 N/A 3,683,450

Other 1,561 4,665,444

Partners 10,233 17,644,862

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties available from willing 

sellers. All parcels face immediate 

threat from rural residential and resort 

development. Securing conservation 

easements from historic family 

farming/ranching operations is a 

priority.

Purchase 1,160 1,750,000

Pending Future Action

Method Acres1 Cost ($)

Pending 8,709 27,643,260

1

Includes fee and conservation easement interest

2

For donation and exchange “cost” = “value”

Partners The Conservation Fund, The Nature Conservancy, Teton Regional Land Trust.

Cooperators U.S. Fish and Wildlife Service, U.S. Forest Service, Bonneville Power Administration, 

Shoshone-Bannock Tribes, Idaho Department of Fish and Game, local counties and 

municipalities, Ducks Unlimited, Trout Unlimited, Greater Yellowstone Coalition, 

Henrys Fork Foundation. 

Project 

Description

Born of snowmelt and springs among high ridges of Yellowstone country, the 42,900-

acre Upper Snake/South Fork Snake River project is an area like no other in the West. 

Gliding through mountains, canyons, and meadows, and the vast farmlands of the 

Snake River plains; a 1980 U.S. Fish and Wildlife Service evaluation rated this area 

the most valuable, biodiverse, and unique ecosystem in Idaho. The riparian corridor, 

lined with commanding cottonwood galleries and a lush shrub understory, sustains a 

broad variety of plants, fish, birds, and wildlife populations. It is the only home for the 

Federally-threatened Ute ladies’-tresses orchid in Idaho; is a world famous, blue 

ribbon fishery, supporting the largest wild Yellowstone cutthroat trout population 

outside of Yellowstone National Park; and provides multiple wildlife migration corridors 

and habitat connectivity. The first World Fly Fishing Championship in North America 

took place on the South Fork in 1997. The area provides crucial habitat for 126 bird 

species (the majority of them neotropical migrants), including the majority of Idaho’s 

bald eagle production (with 27 nesting territories) and has been designated as a 

Nationally Important Bird Area. Diverse recreational opportunities account for 337,000 

recreational visits per year. According to a recent economic report fishing and boating 

within the project area supports 350 jobs and generates $12 million in income1

. The 

scope of the project increased dramatically as a result of enormous public support and 

the residual impact from the 1997 100-year flood event. The project shares a 

contiguous boundary with the Caribou-Targhee National Forest, administered by the 

U.S. Forest Service, and serves as a national model for land conservation, 

strategically utilizing conservation easements in an effort to preserve the unique 

values of this area.

1

The Economic Values of Recreational Fishing & Boating to Visitors and Communities along the Upper 

Snake River, Dr. John Loomis, Department of Agriculture and Resource Economics, Colorado State 

University, Fort Collins, CO (May 2005)

O&M Cost Estimated “start up” cost: $5,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 24

Red Cliffs National Conservation Area

UTAH Washington County Congressional District: 2

Location Southwest Utah, immediately north of 

St. George.

Acquired to Date

Method Acres1 Cost ($)

Purchase 1,853 13,231,983

Purpose Consolidate land ownership within the 

Red Cliffs National Conservation Area 

to improve management of designated 

critical habitat for the Federally-listed 

threatened Mojave Desert tortoise.

Exchange2 4,643 28,407,573

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

Acquisition of one of three available 

inholdings from highly motivated willing 

sellers to eliminate threats inconsistent 

with NCA management and provide for 

continued growth and development in 

neighboring communities.

Purchase 154 4,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 7,716 160,000,000 1

Includes fee and conservation easement interest

2

For donation and exchange “cost” = “value”

Partner The Trust for Public Land.

Cooperators U.S. Fish and Wildlife Service, Utah Dept. of Natural Resources, Washington County.

Project 

Description

Known for its spectacular red rock canyons and basaltic lava flows, the 45,000-acre 

Red Cliffs National Conservation Area (NCA) is surrounded by the towering Pine 

Valley Mountains and the Dixie National Forest to the north and an arc of growing 

communities to the south. The Omnibus Public Land Management Act of 2009, 

designated the Red Cliffs NCA to “conserve, protect, and enhance ecological, scenic, 

wildlife, recreational, cultural, historical, natural, educational, and scientific resources.” 

The NCA is a major component of the 62,000-acre Red Cliffs Desert Reserve, a multijurisdictional land base collaboratively managed by the BLM, the State of Utah, 

Washington County, and local municipalities since 1996 to protect populations and 

habitat of the threatened Mojave Desert tortoise and other at-risk native plant and 

animal species. Acquisition of inholdings within the NCA would satisfy goals 

addressed in the Mojave Desert Tortoise Recovery Plan (USFWS1994) related to the 

protection of tortoise populations and their critical habitat.

The NCA boundary is adjacent to the Dixie National Forest and Snow Canyon State 

Park. The NCA is the largest block of undeveloped land contiguous to the second 

fastest-growing metropolitan area in the nation. St. George is projected to grow from 

its current 140,000 residents to 700,000 residents by 2050. The area offers the 

recreating public a wide variety of options, including camping and day use areas, 

challenges offered by more than 130 miles of non-motorized trails, and remote scenic 

vistas and solitude at Red Mountain Wilderness and Cottonwood Canyon Wilderness. 

In addition to LWCF appropriations, funding from specific land sale authority, land 

exchanges, and partnering with third party partners will be pursued.. 

O&M Cost Estimated “start up” cost: $5,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 25

Cascade-Siskiyou National Monument

Pacific Crest National Scenic Trail

OREGON Jackson County Congressional District: 2

Location Southwest Oregon, 11 miles southeast 

of Ashland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 1,978 2,768,500

Purpose Consolidate checkerboard land 

ownership pattern within the Monument 

to conserve and restore native and 

endemic plants and habitats within the 

greater Klamath-Cascade eco-region.

Exchange2 0 0

Donation2 0 0

Other 147 66,500

Partners 0 0

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

Acquisition of key lands from a highlymotivated forest products company in 

order to increase the connectivity of 

protected monument lands and biologic, 

geologic, and hydrologic resources.

Purchase 1,287 2,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 11,965 17,800,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partners The Conservation Fund.

Cooperators The Wilderness Society, Rocky Mountain Elk Foundation, Pacific Crest Trail 

Association, Soda Mountain Wilderness Council, Friends of the Cascade-Siskiyou 

National Monument.

Project 

Description

Fir forests, oak groves, wildflower meadows and steep canyons make the 53,000-acre 

Cascade-Siskiyou National Monument (CSNM) an ecological wonder, with biological 

diversity unmatched in the Cascade Range. A tremendous variety of plants and animals are 

found amidst the Monument’s towering forests, sunlit groves, wildflower-strewn meadows, and 

steep canyons. The Monument is a bird sanctuary, with more than 200 species identified, 

including the Northern Spotted Owl, the Great Gray Owl, the Peregrine Falcon and the Willow 

Flycatcher.

The targeted properties include a mix of Douglas-fir, ponderosa pine, other conifers 

and oak species. They also contain alpine meadows supporting wildflowers including 

the rare Greene’s Mariposa Lily. The parcels are bordered by BLM-identified Old 

Growth Emphasis and Diversity Emphasis Areas and provide important connectivity 

within the Monument’s ecosystem. Multiple properties include cold-water springs 

containing rare and endemic snails. The CSNM provides habitat for three endemic 

bureau sensitive fish species: Jenny Creek suckers, the speckled dace and a longisolated stock of redband trout. The lands support populations of white-headed 

woodpecker, western pond turtle and beaver. Several tracts include, abut, or are 

within the viewshed of a popular section of the Pacific Crest National Scenic Trail.

O&M Cost Estimated “start up” cost: $1,000. Estimated “annual” maintenance: $10,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 26

California Wilderness

CALIFORNIA Imperial, Kern, Lake, Mendocino, Napa, 

San Bernardino and Tulare Counties

Congressional Districts: 

1, 22, 25, 41, 51

Location All of California. Acquired to Date

Method Acres1 Cost ($)

Purchase 106,000 21,750,000

Purpose Consolidate public ownership within 

designated wilderness to preserve 

wilderness character, and increase 

opportunities for the public to experience 

primitive recreation.

Exchange2 105,000 19,500,000

Donation2 83,000 16,000,000

Other 0 0

Partners 0 0

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties available from willing 

sellers. Parcels face immediate threat 

from commercial, industrial, rural 

residential and suburban development, 

and unregulated off highway vehicle use.

Purchase 3,800 3,068,000

Pending Future Action

Method Acres1 Cost ($)

Pending 326,472 201,534,000 1

Includes fee and conservation easement interest 2

For donation and exchange “cost” = “value”

Partners Mohave Desert Land Trust, Friends of the Desert Mountains, Wilderness Land Trust.

Cooperators The Nature Conservancy, The Wilderness Society, The Sierra Club, The Wildlands 

Conservancy, California State Lands Commission, The California Wilderness Coalition, 

Resources Legacy Fund Foundation, California Native Plants Society, Pacific Crest 

Trail Association.

Project 

Description

There are 88 designated Wilderness areas encompassing over 3.9 million acres of 

public land in California. The first 69 Wilderness areas were designated in southern 

California with the passage of the California Desert Protection Act of 1994. 

Subsequently the Otay Mountain Wilderness Act, Big Sur Wilderness and 

Conservation Act of 2002, Northern California Coastal Wild Heritage Act of 2006, and 

most recently the Omnibus Public Lands Management Act of 2009 designated 19 

additional Wilderness areas on BLM lands in California. These Wilderness areas 

stretch from the north coast of California to the peaks of the Sierra Nevada to lands 

along the Mexican border. 

Over 37 million people are now living in California. These Wilderness areas offer 

places of solitude where people can experience freedom from our fast-paced 

industrialized society. They are places where people can renew the human spirit 

through association with the natural world and offer a respite from the pressure of an 

ever increasing urban lifestyle. These areas provide important habitat to a wide variety 

of animal and plant species, many threatened and endangered, and some Federallylisted species. 

Six Wilderness areas are transected by the 2,638-mile Pacific Crest National Scenic 

Trail and seven Wilderness areas are located adjacent to the Juan Bautista de Anza 

and Old Spanish National Historic Trails. Sixteen parcels are currently available for 

acquisition within nine Wilderness units.

O&M Cost Estimated “start up” cost: $10,000. Estimated “annual” maintenance: $35,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 27

California Coastal National Monument

CALIFORNIA Humboldt and Mendocino Counties Congressional District: 1

Location Northern California, approximately 50 

miles southwest of Ukiah.

Acquired to Date

Method Acres1 Cost ($)

Purchase 2 600,000

Purpose Establish multiple contact areas to 

provide for public education and 

interpretation of the multiple resource 

and recreational values associated with 

the Monument.

Exchange2 0 0

Donation2 1,132 7,260,000

Other 579 433,500

Partners 0 0

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

A unique oceanfront edgeholding parcel 

is currently available from a highly 

motivated willing seller. Coastal 

properties in California face immediate 

threat from commercial and rural 

residential development.

Purchase 366 4,500,000

Pending Future Action

Method Acres1 Cost ($)

Pending 61 2,500,000 1

Includes fee and conservation easement interest

2

For donation and exchange “cost” = “value”

Partners The Trust for Public Land.

Cooperators U.S. Fish and Wildlife Service, The California Coastal Conservancy, California 

Department of Fish and Game, Wildlife Conservation Board, Coastwalk California.

Project 

Description

Located along the entire 1,100-mile California coastline, the California Coastal National 

Monument comprises more than 20,000 small islands, rocks, exposed reefs, and 

pinnacles between Mexico and Oregon, covering approximately 1,000 acres of land. 

The creation of the Monument ensures the protection of these features extending from

mean high tide to within 12 nautical miles of the shoreline.

In an effort to meet the challenge of interpreting a predominately offshore Monument, 

the BLM seeks to establish a number of publically-accessible sites along the California 

coast where the resource and recreational values of the Monument can be better 

offered for public interpretation. Many of these contact areas have been developed 

within areas currently managed by BLM, however the length of the California coast and 

population demographics indicate the need for additional sites dedicated to better 

interpret the Monument to the public. In 2004 the BLM accepted donation of the 

neighboring 1,132-acre Stornetta parcel from The Nature Conservancy. Now known 

as the Stornetta Area of Critical Environmental Concern (ACEC) the property includes 

2.5 miles of coastline, abuts the historic Point Arena Lighthouse and shares a common 

boundary with 760-acre Manchester Beach State Park.

Acquisition of the Cypress Abbey parcel would link the Stornetta ACEC with the 

community of Point Arena, place two additional miles of coastline into public ownership 

and further completion of the California Coastal Trail. The property contains critical 

habitat for two endangered species, the Behrens’ Silverspot Butterfly and the Point 

Arena subspecies of Mountain Beaver. Both species are only found on this stretch of 

the California coast. The Trust for Public Land has negotiated a leverage to fully cover 

the $8M cost of this property.

O&M Cost Estimated “start up” cost: $15,000. Estimated “annual” maintenance: $15,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 28

Sandy River Area of Critical Environmental Concern

Oregon National Historic Trail

OREGON Clackamas and Multnomah Counties Congressional Districts: 3 and 5

Location Northwest Oregon, 20 miles southeast 

of Portland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 2,501 14,605,000

Purpose Preservation of the Sandy/Salmon River 

gorge and interwoven Oregon National 

Historic Trail corridor, providing for the 

protection of open space, scenic, 

recreation, fisheries, and wildlife values.

Exchange2 3,548 15,761,730

Donation2 0 0

Other 0 0

Partners 1,500 6,660,115

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

Acquisition of two of nine available 

parcels from highly motivated willing 

sellers. Parcels face immediate threat 

from commercial and rural residential 

development and degrading land use 

practices.

Purchase 210 2,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 550 4,200,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner Western Rivers Conservancy.

Cooperators U.S. Forest Service, State of Oregon, Clackamas and Multnomah Counties, METRO 

(regional government body), Cities of Portland and Sandy, Portland General Electric 

(PGE), The Nature Conservancy, Northwest Steelheaders, Oregon Trout, Sandy River 

Watershed Council.

Project 

Description

A breath-taking scenic corridor immediately east of metropolitan Portland, the Sandy 

and Salmon Rivers descend from the forested slopes of Mount Hood, harboring a rich 

diversity of animal and plant populations, within secluded riparian and wetland areas. 

Multiple threatened salmonid species, including Lower Columbia Chinook and Coho 

salmon and Steelhead use these turbulent waters for spawning and rearing their young 

before returning to the Pacific Ocean via the Columbia River. Old growth stands of 

Douglas fir contain prime habitat for the threatened northern spotted owl.

The 29,000-acre Sandy River Area of Critical Environmental Concern (ACEC) offers 

exceptional recreational opportunities for fishing, hiking, wildlife viewing, nature study, 

and non-motorized boating or floating. The area is easily accessible from metropolitan 

Portland, the Northwest’s second largest population center.

The Sandy River ACEC contains the route of the historic Barlow Trail Road, the 

western segment of the Oregon National Historic Trail and shares a common boundary 

with the Salmon-Huckleberry Wilderness, administered by the U.S. Forest Service.

PGE recently completed removal of their Bull Run hydroelectric project, including dams 

on both the Sandy and Little Sandy Rivers. Dam removal has restored the free flowing 

character of the Sandy River. Numerous projects designed to improve accessibility 

and enhance and restore habitat for listed species have been undertaken by BLM and 

its partners on and adjacent to recently acquired parcels within the project area.

The two parcels targeted for funding have 1.5 miles of combined frontage on the 

Sandy River and the Salmon River (a tributary of the Sandy River).

O&M Cost Estimated “start up” cost: $5,000. Estimated “annual” maintenance: $1,500.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 29

Red Rock Canyon National Conservation Area

NEVADA Clark County Congressional District: 3

Location Southern Nevada, immediately west of 

metropolitan Las Vegas.

Acquired to Date

Method Acres1 Cost ($)

Purchase 92 21,000,000

Purpose Acquire private inholdings to 

consolidate ownership and reduce 

environmental impacts, with special 

emphasis in the Calico Basin 

watershed.

Exchange2 22,000 44,000,000

Donation2 439 2,800,000

Other 92 21,000,000

Partners 0 0

Proposed for FY2013 (Core)

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing immediate 

threat of rural residential and suburban 

redevelopment as existing modest and 

deteriorating homes are rebuilt and 

replaced.

Purchase 2.5 500,000

Pending Future Action

Method Acres1 Cost ($)

Pending 2,034 23,900,000 1

Includes fee and conservation easement interest

2

For donation and exchange “cost” = “value”

Partner Managed by BLM.

Cooperators U.S. Fish and Wildlife Service, Nevada Department of Wildlife, Clark County, The 

Nature Conservancy, Friends of Red Rock, Red Rock Canyon Interpretive Association. 

Project 

Description

Located 17 miles west of the Las Vegas Strip and visited by more than one million 

people each year, the 195,819-acre Red Rock Canyon was designated in 1990 as 

Nevada's first National Conservation Area (NCA). In marked contrast to a town geared 

to entertainment and gaming, Red Rock Canyon offers enticements of a different 

nature including a 13-mile scenic drive, more than 30 miles of hiking trails, rock 

climbing, horseback riding, mountain biking, road biking, picnic areas, nature observing 

and a state-of-the-art visitor center featuring interactive outdoor exhibits. The unique 

geologic features, plants and animals of Red Rock Canyon represent some of the best 

examples of the Mojave Desert.

The requested funding would acquire a 2.5-acre parcel within Calico Basin, a small 

residential community located 15 miles west of the Las Vegas Strip. Wholly within the 

NCA, Calico Basin, once far from Las Vegas, is now minutes from sprawling 

residential, commercial and casino developments. The land ownership pattern of 

Calico Basin, heavily influenced by BLM “Small Tract Act” sales in the 1950’s, includes 

a mixture of small-acreage house lots intermingled with public domain lands still 

managed by the BLM. The popularity of Calico Basin as a “jumping off” point for 

numerous backcountry trails and the recent redevelopment of BLM’s Red Spring Day 

Use Area conflicts with redevelopment of the modest 1950’s era homesites into gated, 

multi-million dollar estates. These changes are quickly altering the character of the 

area and compromising the remaining natural resource values. The goal is to acquire 

available properties and consolidate them with existing BLM-managed lands. If 

acquired, this property would be restored to a natural state and be a valuable asset in 

helping BLM meet the increasing recreational and educational needs of the NCA. 

Acquisition of this inholding would increase recreational opportunity, improve scenic 

values, enhance open space, improve the watershed, and provide habitat for multiple 

T&E species and Sensitive species.

O&M Cost Estimated “start up” cost: $1,000. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2012 Budget Justifications

Chapter X – Land Acquisition Page X - 30

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Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 31

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Emergencies & Hardships 

($000) 1,497 1,498 0 0 1,498 0

FTE 0 0 0 0 0 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Inholding, Emergency and Hardship land acquisition program 

is $1,498,000 and 0 FTE. 

PROGRAM OVERVIEW

The Inholding, Emergency and Hardship land acquisition program allows the BLM to promote 

conservation of natural landscapes and resources by consolidating privately owned land with 

publicly owned land when properties become available on short notice and would not remain 

available unless immediate action is taken. The availability of funds for 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.

2013 PROGRAM PERFORMANCE

In 2013, 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: Inholding, Emergency and Hardship
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 32

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Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 33

Activity: Land Acquisition

Subactivity: Acquisition Management

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Acquisition ($000) 1,875 1,877 +17 +1,106 3,000 +1,123

FTE 11 11 0 0 11 0

Summary of 2013 Program Changes for Acquisition Management

Request Component ($000) FTE

Program Changes:

• General Program Increase +1,106 0

TOTAL, Program Changes +1,106 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Acquisition Management program is $3,000,000 and 11 FTE, a 

program change of +$1,106,000 and 0 FTE from the 2012 enacted level.

General Program Increase (+$1,106,000) – Program increase will cover increased costs for 

new collaborative projects and initiatives. In addition, the BLM will focus on building program 

capacity through training and mentoring to provide skills into the future. 

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 
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 34

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.

2013 PROGRAM PERFORMANCE

In 2013, 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 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 35

BUDGET SCHEDULES

Account Symbol and Title

14X5033

Land Acquisition Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land acquisition 0001 21 21 22

 Acquisition management 0002 2 2 3

Total new obligations 0900 23 23 25

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 20 19 18

 Budget authority:

 Appropriations, discretionary:

 Appropriation (special or trust fund) 1101 22 22 34

 Appropriation, discretionary (total) 1160 22 22 34

 Discretionary, Appropriations Committee

 Policy Outlays:

 Baseline Outlays:

Total budgetary resources available 1930 42 41 52

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 19 18 27

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 

(gross) 3000 2 3 6

 Obligations incurred, unexpired accounts 3030 23 23 25

 Outlays (gross) 3040 -22 -20 -28

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 3 6 3

 Obligated balance, end of year (net) 3100 3 6 3
Bureau of Land Management 2013 Budget Justifications

Chapter X – Land Acquisition Page X - 36

BUDGET SCHEDULES

Account Symbol and Title

14X5033

Land Acquisition Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 22 22 34

 Outlays, gross:

 Outlays from new discretionary authority 4010 0 6 9

 Outlays from discretionary balances 4011 22 14 19

 Outlays, gross (total) 4020 22 20 28

 Budget authority, net (discretionary) 4070 22 22 34

 Outlays, net (discretionary) 4080 22 20 28

Budget authority, net (total) 4180 22 22 34

Outlays, net (total) 4190 22 20 28

Object Classification (O) ($ in Millions)

Direct obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 1111 1 1 1

 Land and structures 1320 22 22 24

 Total new obligations 9999 23 23 25

Character Classification (C) ($ in Millions)

INVESTMENT ACTIVITIES:

 Physical assets:

 Major equipment:

 Purchases and sales of land and structures for 

Federal use:

 Direct Federal programs:

 Budget Authority 1340-01 22 22 34

 Outlays 1340-02 22 20 28

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 11 11 11

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources 1000 33,575
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 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-of 

way; and acquisition of lands or interests therein, including existing connecting roads on or 

adjacent to such grant lands; $112,043,000, to remain available until expended: Provided, That 

25 percent of the aggregate of all receipts during the current fiscal year from the revested 

Oregon and California Railroad grant lands is hereby made a charge against the Oregon and 

California land-grant fund and shall be transferred to the General Fund in the Treasury in 

accordance with the second paragraph of subsection (b) of title II of the Act of August 28, 1937 

(50 Stat. 876). (Department of the Interior, Environment, and Related Agencies Appropriations 

Act, 2012.)

APPROPRIATIONS LANGUAGE CITATIONS AND AUTHORIZATIONS

The Oregon and California Grant Lands Act of 1937 (43 U.S.C. 1181) provides for 

conservation, management, permanent forest production, and sale of timber from revested 

Oregon and California grant lands and reconveyed Coos Bay Wagon Road grant lands located 

in western Oregon.

The Federal Land Policy and Management Act of 1976, 43 U.S.C. 1701 et seq., as 

amended, provides for the public lands to be generally retained in Federal ownership; for 

periodic and systematic inventory of the public lands and their resources; for a review of existing 

withdrawals and classifications; for establishing comprehensive rules and regulations for 

administering public land statutes; for multiple use management on a sustained yield basis; for 

protection of scientific, scenic, historical, ecological, environmental, air and atmospheric, water 

resource, and archaeological values; for receiving fair market value for the use of the public 

lands and their resources; for establishing uniform procedures for any disposal, acquisition, or 

exchange; for protecting areas of critical environmental concern; and for recognizing the 

Nation's need for domestic sources of minerals, food, timber, and fiber from the public lands, 

including implementation of the Mining and Minerals Policy Act of 1970.

The Federal Land Policy and Management Act applies to all public lands that include the 

O&C grant lands by definition (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.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 2

The Act of May 24, 1939 (53 Stat. 753) relates to the disposition of funds from the CBWR grant

lands located in western Oregon. 

The Timber Protection Act of 1922 (16 U.S.C. 594) provides for the protection of timber from 

fire, insects, and disease.

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393)

authorizes stabilized payments to O&C and CBWR Counties for 2001 through 2006. Each 

county that received at least one payment during the eligibility period (1986-1999) received an 

amount equal to the average of the three highest 50-percent payments and safety net payments 

made for the years of the eligibility period. The payments were adjusted to reflect changes in 

the Consumer Price Index. The Act expired in 2006. The final payments for 2006 were made in 

2007, consistent with the Act.

P.L. 110-28 provided one additional year of payments to O&C grant lands and Coos Bay 

Wagon Road counties.

Sec. 601. of P.L. 110-343 Secure Rural Schools and Community Self-Determination 

Program provided an extension and ramping down of payments to the O&C grant lands and the

Coos Bay Wagon Road counties through fiscal year 2011.

Public Land Order 5490, dated February 12, 1975, reserved all public lands in and west of 

Range 8 East of the Willamette Meridian and all lands within that area which hereinafter 

become public lands for multiple use management, including sustained yield of forest resources 

in connection with intermingled revested Oregon and California Railroad Grant Lands and 

reconveyed Coos Bay Wagon Road Grant Lands. 

Healthy Forest Restoration Act (P.L. 108-148) authorizes the BLM and the U.S. Forest 

Service to conduct hazardous fuels reduction projects on federal land in wildland-urban 

interface (WUI) areas and on certain other federal lands using expedited procedures.

Land Conveyance to Douglas County, Oregon, (P.L. 108-206) authorized conveyance to 

Douglas County, Oregon, of approximately 68.8 acres of BLM-managed land in Douglas County 

in order to improve management of and recreational access to the Oregon Dunes National 

Recreation Area. 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 3

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

2011 Enacted 2012 Enacted Fixed 

Costs

Internal 

Transfers

Program 

Changes (+/-)

2013 President's 

Budget

Change From 

2012 Enacted

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Oregon and California Grant Lands

Western Oregon Construction and Acquisition

Acquisition Mgt. 3 314 3 310 +3 +0 +0 +0 3 313 0 +3

Total, Western Oregon Construction and 

Acquisition 3 314 3 310 +3 +0 +0 +0 3 313 0 +3

Western Oregon Transportation and Facilities 

Maintenance

Operations 20 2,120 20 2,081 +0 +0 -20 -2,081 0 0 -20 -2,081

Annual Maintenance 56 7,977 56 7,864 +0 +0 -56 -7,864 0 0 -56 -7,864

Deferred Maintenance 3 1,039 3 1,039 +0 -1,039 -3 +0 0 0 -3 -1,039

Operations and Annual Maintenance [76] [10,097] [76] [9,945] +85 +0 +0 +9,945 76 10,030 0 +10,030

Total, Western Oregon Transportation and 

Facilities Maintenance 79 11,136 79 10,984 +85 -1,039 -79 +0 76 10,030 -79 -954

Western Oregon Resources Management

Forest Management 273 31,666 273 32,060 +301 +0 +3 +1,500 276 33,861 +3 +1,801

Reforestation & Forest Development 156 24,038 156 23,622 +150 +0 -6 -1,211 150 22,561 -6 -1,061

Other Forest Resources 262 37,472 262 36,616 +330 +0 +0 +0 262 36,946 0 +330

Resource Management Planning 27 3,753 36 5,601 +34 +0 +0 +0 36 5,635 0 +34

Total, Western Oregon Resources 

Management 718 96,929 727 97,899 +815 +0 -3 +289 724 99,003 -3 +1,104

Western Oregon Information & Data Systems

Information Systems Operation & 

Maintenance 14 2,124 14 1,923 +18 +0 +0 +0 14 1,941 0 +18

Total, Western Oregon Information & Data 

Systems 14 2,124 14 1,923 +18 +0 +0 +0 14 1,941 0 +18
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 4

2011 Enacted 2012 Enacted Fixed 

Costs

Internal 

Transfers

Program 

Changes (+/-)

2013 President's 

Budget

Change From 

2012 Enacted

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Nat'l Landscape Conservation System

Nat'l Monuments & Nat'l Cons. Areas 9 831 9 748 +8 +0 +0 +0 9 756 0 +8

Nat'l Landscape Conservation System 9 831 9 748 +8 +0 +0 +0 9 756 0 +8

Total, Oregon and California Grant Lands 823 111,334 832 111,864 +929 -1,039 -82 826 112,043 -82 +179 

JUSTIFICATION OF FIXED COSTS

(Dollars in Thousands)

Pay Raise and Pay-Related Changes 2011

2012 

Change

2013 

Change

Calendar Year 2010 Quarter 4 

-

Calendar Year 2011 Quarters 1-3 

-

Calendar Year 2011 Quarter 4 +0 

Calendar Year 2012 Quarters 1-3 +0 

Calendar Year 2012 Quarter 4 +0 

Calendar Year 2013 Quarters 1-3 259 

Non-Foreign Area COLA Adjustment to Locality 

Pay +0 

Change in Number of Paid Days +290 

Employer Share of Federal Health Benefit Plans [+264] +380 

 Numbers in brackets indicate amounts absorbed by the agency in FY 2012. 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 5

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. BLM manages these lands for forest diversity and sustainability while providing an array 

of multiple-use benefits and services to local communities and the public (see discussion under 

each activity and subactivity). As mandated by the O&C Act of 1937 (43 U.S.C. 1181), these 

lands are managed for timber production under the principle of sustained yield. Activities focus 

on forest management including commodity production; watershed health and productivity 

including soil and water restoration projects; wildlife and fisheries habitat improvement; 

recreation opportunities; cultural resources protection; and infrastructure maintenance.

O&C grant lands, CBWR lands, and intermingled public domain lands comprise 2.4 million 

acres that are managed with this appropriation. Resources on public domain land (10 percent 

of the area) are managed under the provisions of the Federal Land Policy and Management Act 

of 1976. Programs conducted on certain O&C grant lands within National Forests are under the 

jurisdiction of the U.S. Forest Service and managed with U.S. Forest Service funds. Receipts 

generated from U.S. Forest Service activities on these lands, however, are returned to the BLM

for payment to counties in accordance with the Act. The O&C appropriation has five budget 

activities that are summarized below that fund the implementation of the BLM’s resource 

management plans (RMP’s) and support resource activities on the O&C and CBWR grant lands 

under the BLM’s jurisdiction.

• Western Oregon Construction and Acquisition - Provides for the acquisition of 

easements, road-use agreements for timber site access, and the design of access roads 

for general resource management purposes. 

• Western Oregon Transportation and Facilities Maintenance - Provides for 

maintenance activities for the transportation system, office buildings, warehouse and 

storage structures, shops, greenhouses, and recreation sites. Efforts are focused on 

maintaining the transportation system that is necessary for effective implementation of 

the district’s 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. 

Beginning in 2013, deferred Maintenance and Capital Improvement projects will no 

longer be funded through this budget activity, but instead will be funded through the 

Management for Land and Resources Deferred Maintenance and Capital Improvements 

budget subactivity.

• Western Oregon Resources Management – Provides for preparing, offering, 

administering and monitoring timber sales; maintaining the sustainability of forest 

resources and timber harvest through reforestation and restoration techniques; 

managing wildlife habitat; and maintaining or improving water and air quality. 

• Western Oregon Information and Resource Data Systems - Provides for the 

acquisition, operation, and maintenance of the automated data support systems required 

for the management of the O&C grant lands. The focus of this program is to make data 

operational for monitoring and adaptive management; and for developing activity plans, 

such as timber sales and habitat management plans.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 6

• 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. 

ADDITIONAL FUNDING METHODS

In addition to the O&C Grant Lands appropriation, there are two Permanent Operating Fund 

Appropriations that are available for use that do not require annual appropriation action. These 

are the Timber Sale Pipeline Restoration Fund and the Forest Ecosystem Health and Recovery 

Fund as outlined in Chapter XI – Permanent Operating Funds, 2013 Budget Justification. 

MANAGEMENT OF OREGON AND CALIFORNIA GRANT LANDS

The BLM manages 2.4 million acres of forested O&C and Coos Bay Wagon Road lands in 

western Oregon. The BLM has practiced sustainable forest management, as outlined in the 

O&C Act of 1937, which includes a provision for the western Oregon counties to receive shares 

of timber sale receipts. In the late 1970's, U.S. Forest Service researchers observed a rapid 

decline in the populations of the northern spotted owl, a species associated with old-growth 

forests. The northern spotted owl was listed as threatened June 26, 1990, under the 

Endangered Species Act of 1973, citing loss of old-growth habitat. BLM modified management 

of forested lands in response, reducing the annual timber sale volumes and thus reducing 

receipts to counties.

Soon after the listing of the owl, President Clinton convened a group of scientists called the 

Forest Ecosystem Management Assessment Team. Their Assessment report in July, 1993, led 

to the development of the Northwest Forest Plan (NWFP) in April, 1994, which amended BLM 

and US Forest Service land use plans within the range of the northern spotted owl. This plan 

set out land use allocations and standards and guidelines for management designed to 

O&C LANDS IN WESTERN OREGON

(ACRES)

BLM-Managed Lands 

 O&C Grant Lands 2,084,800

 CBWR Lands 74,500

 Public Domain Lands 239,500

 Total – BLM 2,398,800

U.S. Forest Service-Managed Lands 

 Controverted O&C 

Lands

462,700

 Special Act O&C Lands 29,700

 Total - U.S. Forest 

Service

492,400
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 7

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. BLM timber sales 

have been litigated by both the environmental and industry communities. The Secure Rural 

Schools and Community Self-Determination Act of 2000 (and as amended) allowed Counties to 

opt for a federal payment rather than a portion of timber receipts. This legislation has currently 

expired

Despite the challenges, the BLM is committed to the management of public forests in the Pacific 

Northwest to reach multiple goals: contribute to the restoration of functional and sustainable 

ecological conditions in Federal forests; conserve old-growth forests and trees; assist in the 

recovery of threatened species; provide economic opportunities to help sustain local 

communities; and maintain a highly skilled workforce and milling infrastructure. 

A number of processes are underway at this time in order to meet these challenges. 

In July, 2009, the Western Oregon Plan Revisions (2008 RODs/RMPs), finalized in December, 

2008, were withdrawn by the Secretary because he determined the process was legally flawed

for failure to complete consultation under the Endangered Species Act. The decision to 

withdraw the 2008 RODs/RMPs was accompanied with the direction to revert back to managing 

the O&C lands under the Northwest Forest Plan (1995 RODs/RMP). The BLM subsequently 

designed a timber sale program of work for 2009 through 2012 that is consistent with the 1995 

RODs/RMPs, Northwest Forest Plan, the Endangered Species Act, and other laws and 

regulations. Forest restoration is one of the goals of the forest plan, and is emphasized where 

appropriate in the context of the timber sale planning process. 

BLM management plans in western Oregon continue to be the target of litigation from both 

conservation and industry groups, resulting in a complicated and changing legal framework 

under which managers must attempt to implement projects. Despite those challenges, BLM 

continues to meet the targets associated with our appropriated budgets. 

In October, 2009, Director Abbey and the late FWS Director Sam Hamilton convened the 

interdisciplinary Western Oregon Task Force. The task force was composed of employees from 

the BLM, FWS, National Marine Fisheries Service and Forest Service, with backgrounds in a 

range of resource disciplines. This task force 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, Secretary of the Interior Ken Salazar set in motion a plan to apply the 

principles of ecological restoration, as suggested by Drs. Norm Johnson and Jerry Franklin, on 

BLM lands. This ongoing initiative is exploring ways to restore ecological processes and 

address economic issues in southwest Oregon. The BLM is currently working on three pilot 

projects in various stages of development, in the Medford, Roseburg, and Coos Bay Districts, 

with input and leadership from Professors Johnson and Franklin. The projects seek to 

demonstrate a landscape level approach to forest ecosystem restoration through active 

management, to restore more functional and sustainable ecological conditions in Federal 

forests, while recovering threatened species and providing needed employment opportunities. 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 8

The FWS is assisting in development and review of the restoration efforts, and the BLM is using 

a variety of means to inform, educate and involve stakeholders who care about public land 

management, to stimulate collaboration across the spectrum. The Medford District recently sold 

their first timber sale in 2011 from the pilot, and the other two districts will be offering sales from 

their pilots in 2012. 

In July 2011, a Settlement Agreement for Survey and Manage was finalized, which reinstated 

the January 2001 ROD for Survey and Manage, revised the 2001 species list, and added 

exemptions for pre-disturbance surveys for some activities. Harvest of stands greater than 80 

years of age will require species surveys, and often times, protection of documented sites. The 

FWS issued their Revised Recovery Plan for the Northern Spotted Owl in June 2011. 

The Oregon BLM is moving forward with a new planning effort for the six west-side Oregon 

districts in 2012. The Oregon BLM anticipates initiating the planning process in 2012 with a 

Notice of Intent to Revise Resource Management Plans to be published in the Federal Register. 

As BLM prepares to revise its land management plans for western Oregon forests, there are 

several recent events that could be used as a foundation for future planning including the work 

by FWS on the Northern Spotted Owl Recovery Plan and upcoming Critical Habitat designation, 

information gained by the Secretary’s pilot projects, and an interim report by Professors Franklin 

and Johnson (“Southwest Oregon Secretarial Pilot Projects on BLM Lands; Our Experience So 

Far and Broader Considerations for Long-terms Plans,” expected in Spring, 2012. .

TIMBER HARVEST TARGETS AND VOLUMES

The long-term annual timber target or allowable sale quantity (ASQ) of the Northwest Forest 

Plan (NWFP) is 203 MMBF. Additional volume from the reserve land use allocations does not 

count towards the ASQ target but will contribute to the Bureau target of timber volume sold in 

each fiscal year. The timber targets and accomplishments displayed in the tables below are for 

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

M

M

B

F

O&C Volume Offered 2001-2011
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 9

BLM O&C ALLOWABLE SALE QUANTITY –

TOTAL VOLUME OFFERED UNDER THE NWFP

Year Allowable Sale 

Quantity (ASQ) Target 

1995-2013 MMBF

ASQ 

Matrix 

Volume 

Offered 

MMBF

LSR and 

RR 

Volume 

Offered 

MMBF

Total 

Volume 

Offered 

MMBF

Total 

Volume 

Offered 

MMBF

OR CA Total 

ASQ OR OR CA OR & CA

1995 118 15 133 127.3 * 22.8 150.1

1996 180 2.5 182.5 189.7 * 5.8 195.5

1997 211 2.5 213.5 212.0 * 10.2 222.2

1998 211 2.5 213.5 257.5 * 0.4 257.9

1999 203 2.5 205.5 61.7 * 3.1 64.8

2000 203 2.5 205.5 69.2 * 0.7 69.9

2001 203 1 204 56.4 * 0.1 56.5

2002 203 1 204 162.5 * 0.4 162.9

2003 203 1 204 162.7 * 0.0 162.7

2004 203 1 204 140.0 * 0.1 140.1

2005 203 1 204 163.0 35 7.7 205.9

2006 203 1 204 168.0 33 0.6 201.2

2007 203 1 204 138.0 58 3.2 198.8

2008 203 1 204 174.0 56 0.8 236.8

2009 203 1 204 154.0 48 0.8 202.8

2010 203 1 204 174.0 60 0.8 233.8

2011 203 1 204 143.0 54 0.8 197.8

2012 

est. 203 1 204 142.0 51 0.8 193.8

2013 

est. 203 1 204 146.0 51 0.8 197.8

NOTE: Some totals may not add due to rounding.

Note: This table displays lands in California that are not part of the O&C grant lands, but are within the area of 

the Northwest Forest Plan (NWFP). 

** Between 1995 and 2004 LSR and RR volume was not reported as volume offered.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 10

O&C REVENUES AND RECEIPTS

O&C timber receipts used for O&C payments are derived from the harvest of timber on the O&C 

grant lands managed by the BLM as well as the controverted O&C grant lands under the 

jurisdiction of the U.S. Forest Service. While the O&C Act of 1937 governs sustained yield 

management of all BLM lands in western Oregon, receipts derived from the sale of timber on 

Coos Bay Wagon Road lands and Public Domain lands in western Oregon are not considered 

O&C receipts. 

The economic downturn in the construction industry in the United States reduced the demand 

for wood products and cause financial hardship for many timber purchasers. In October of 2009, 

the Secretary of the Interior directed the BLM to extend a limited-time offer to negotiate 

cancellation of certain existing timber sale contracts to avoid purchaser default and subsequent 

loss of industry infrastructure. There were 45 requests for mutual cancellation received in 

western Oregon and 28 of these contracts have been cancelled through mutual agreement. 

The BLM reoffered 8 of these cancelled sales in fiscal year 2011, and is planning on offering 8 

of these sales in fiscal year 2012 to the extent possible. 

Due to a shortage of new timber offered for sale from other lands in the Pacific Northwest, sales 

offered in fiscal years 2010 and 2011 were sought out by the industry and many purchasers 

began operations immediately following approval of the contract. Since the bid price for these 

sales is based on current market conditions, purchasers are able to operate on them and thus 

maintain their logging and sawmilling infrastructure in the region.

TIMBER RECEIPTS FOR WESTERN OREGON BLM LANDS (Million $)

2008 2009 2010 2011 2012 est. 2013 est.

O&C Grant Lands

Regular Sales 13.0 14.2 9.7 11.6 10 10

Salvage Sales 4.3 5.5 3.2 2.7 3.9 3.9

 Subtotal 17.3 19.7 12.9 14.3 13.9 13.9

CBWR Lands

Regular Sales 0.3 0.2 .8 0 0.6 0.6

Salvage Sales 0 0 0 0 0.1 0.1

 Subtotal 0.3 0.2 0.8 0 0.7 0.7

Timber Sale Pipeline Restoration Fund

PD, O&C, and 

CBWR 10.4 5.2 4.3 4.0 3.9 2.1

Stewardship Contract Excess Proceeds

PD, O&C, and 

CBWR 0 .1 0 0.1 0 0

Total Receipts 28.0 25.2 18.0 18.4 18.5 16.7
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 11

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 U.S. Forest Service and the BLM, using revenues generated 

by timber sales released under Section 2001(k) of the 1995 Supplemental Appropriations for 

Disaster Assistance and Rescissions Act, which directs that 75 percent of the Pipeline Fund be 

used to fill each agency’s timber sale “pipeline” and that 25 percent of the Pipeline Fund be 

used to address the maintenance backlog for recreation projects on BLM and U.S. Forest 

Service lands after statutory payments are made to State and local governments and the U.S. 

Treasury.

At the end of 2011, the balance has declined to approximately $7.8 million, from a 2010 balance 

of $8.3 million. A spend-down plan has been implemented to bring the Fund balance down to 

approximately $5.8 million by the end of fiscal year 2013. This carryover balance offsets 

irregular yearly deposits caused by fluctuations in timber market conditions. A balance at the 

end of the year is necessary to permit continued use of the Fund to meet the Fund’s annual 

objective of rebuilding the timber sale pipeline. Receipts, deposits and cumulative expenditures 

are described in the Permanent Operating Funds chapter. 

PAYMENTS TO THE O&C COUNTIES

Timber harvest levels have dropped significantly from the historical levels of the late 1980s and 

early 1990s. The traditional payment formulas defined in Title II of the Oregon and California 

Grant Lands Act of 1937, U.S.C. 43 1181f, (50 Stat. 876, Title II) were modified to account for 

these declines and provide fiscal predictability to the O&C counties.

Receipts from public domain lands within the O&C grant lands are distributed to the State of 

Oregon (4 percent), the General Fund of the U.S. Treasury (20 percent), and the Reclamation 

Fund (76 percent), except those generated through projects funded by the Forest Ecosystem 

Healthy Recovery Fund and Timber Sale Pipeline Fund, which are deposited into those 

accounts. 

Under the Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393), 

the annual payments to the 18 O&C counties were derived from any revenues, fees, penalties, 

or miscellaneous receipts (exclusive of deposits to any relevant trust fund, or permanent 

operating funds such as the Timber Sale Pipeline Restoration or the Forest Ecosystem Health 

and Recovery funds) received by the Federal government from activities by the BLM on O&C 

lands, and to the extent of any shortfall, out of any funds in the Treasury not otherwise 

appropriated. The Secure Rural Schools Act 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.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 12

Also under the Secure Rural Schools Act of 

2000, the BLM worked collaboratively with the 

five western Oregon Resource Advisory 

Committees, which reviewed over 1,024 

restoration projects and recommended 591 

projects for implementation worth approximately 

$42.8 million.

In October, 2008, Congress enacted Section 601 

of Public Law 110-343, which extended the 

Secure Rural 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 2012. As in 

the prior act, payments were to be made for the 

year prior. The payments for 2008 through 2010 

are described in the law as “transition” payments, 

and are a declining percentage of the payments 

made in 2006; the payment in 2009 (for 2008) is 

90 percent of the amount paid in 2006, the 

payment in 2010 (for 2009) is 81 percent, and the 

payment in 2011 (for 2010) is 73 percent. The 

payments made to counties in 2012 (for 2011) 

used a formula based on several factors that 

include acreage of Federal land, previous 

payments, and per capita personal income. More 

information on these payments is contained in 

the Miscellaneous Permanent Payments chapter.

The Budget reflects a five-year reauthorization, 

starting in FY2012, of the Secure Rural Schools 

Act with funding through mandatory U.S. Forest 

Service appropriations. This SRS proposal 

revises the allocation split between the three portions of the program from the current authority 

emphasizing enhancement of forest ecosystems, restoration and improvement of land health 

and water quality and the increase of economic activity. The FY 2013 payment is proposed for 

$294 million.

For more information on this proposal, see the U.S. Forest Service Budget Justifications.

PAYMENT TO WESTERN OREGON COUNTIES 

(MILLION $)

Year O&C 

Lands

CBWR

Lands

Total 

Payment

1994 $78.6 $0.6 $79.2

1995 75.8 0.6 76.4

1996 73.0 0.6 73.6

1997 70.3 0.6 70.9

1998 67.5 0.5 68.0

1999 64.7 0.5 65.2

2000 61.9 0.5 62.4

2001 0 0 0

2002 108.7 1.0 109.7

2003 109.6 1.0 110.6

2004 110.9 1.0 111.9

2005 112.3 1.0 113.3

2006 114.9 1.0 115.9

2007 116.3 1.0 117.3

2008 115.9 1.0 116.9

2009 104.5 0.9 105.4

2010 94.0 0.8 94.8

2011 84.7 0.7 85.5

2012* 39.7 0.3 40.0

* The payments in 2012 are based on P.L. 106-303 

as amended by P.L. 110-343. 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 13

Activity: Western Oregon Acquisition

2013

Fixed 

Costs & Program 

2011 2012

Related 

Changes

Changes 

(+/ -) 

Budget 

Request

Change from 

2012 Enacted

Subactivity Actual Enacted (+/ -) (+/-)

Acquisition Mgmt. $ 314 310 +3 0 313 +3

FTE 3 3 0 0 3 0

Total Activity $ 314 310 +3 0 313 +3

FTE 3 3 0 0 3 0

The 2013 Budget Request for the Western Oregon Acquisition Activity is $313,000 and 3 FTE.

ACTIVITY DESCRIPTION

Funding in the Acquisition program is used to acquire and protect federal access rights to public 

lands in western Oregon. The primary objective for the O&C acquisition program is to provide 

legal access to BLM timber sales. Access is the legal right to cross non-federal land to reach 

public lands. It is estimated that there are nearly 5,000 separate tracts of land administered by

the BLM in the O&C area which require some form of access for proper management and 

protection. Access is obtained by the BLM through negotiated purchase of perpetual 

easements or by acquisition (fee purchase) or condemnation. Acquisition funding is also used 

to acquire lands or interests in lands needed for infrastructure development, including recreation

sites, administrative sites, and transportation facilities
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 14

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Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 15

Activity: Western Oregon Transportation and 

Facilities Maintenance

2013 Change

Fixed Costs & Program from

2011 2012 Related Changes Changes Budget 2012 Enacted

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-)

Operations $ 2,120 2,081 0 -2,081 0 [-2,081]

FTE 20 20 0 -20 0 [-20]

Annual 

Maintenance $ 7,977 7,864 0 -7,864 0 [-7,864]

FTE 56 56 0 -56 0 [-56]

Deferred 

Maintenance $ 1,039 1,039 0 -1,039 0 -1,039

FTE 3 3 0 -3 0 -3

Operations and 

Annual 

Maintenance $ [10,097] [9,945] +85 +9,945 10,030 +85

FTE [76] [76] 0 0 76 0

Total Activity $ 11,136 10,984 +85 -1,039 10,030 -954

FTE 79 79 0 -79 76 -3

The 2013 budget request for the Western Oregon Transportation and Facilities Maintenance

Activity is $10,030,000 and 76 FTE, a net reduction of -$1,039 and -3 FTE from the 2012 

enacted level. The net reduction includes a transfer of -$1,039,000 and -3 FTE from this activity 

to the Deferred Maintenance and Capital Improvements subactivity in the Management of Lands 

and Resources account. The BLM anticipates increasing overall efficiency in program 

management, reducing the FTE from 3 to 1. In 2013, BLM will consolidate the operations and 

annual maintenance subactivities into a new subactivity, reflecting a program transfer of 

$9,945,000, from the Operations subactivity and the Annual Maintenance subactivity, to the 

proposed Operations and Annual Maintenance subactivity.

ACTIVITY DESCRIPTION

BLM facilities in western Oregon include administrative sites, large visitor centers, radio 

repeater buildings, restrooms, warehouses, storage structures, maintenance shops, 

greenhouses, recreation sites, as well as roads, and bridges. The BLM has been working to 

relocate and upgrade many of its facilities in order to reduce health and safety risks, meet 

environmental requirements, or comply with building codes and standards. 

The Western Oregon Transportation and Facilities Maintenance program sustains the condition 

of facilities and the transportation system by performing preventative and corrective 

maintenance to a standard that protects resource values, meets public health and safety 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 16

standards, and protects the public’s investment. The BLM conducts condition assessments on 

facilities and transportation systems to identify annual and deferred maintenance needs.

The types of facilities maintained by the BLM in western Oregon include the following:

• Administrative Facilities - In western Oregon, the BLM maintains 65 administrative sites 

with 162 buildings, including office buildings, greenhouses, small radio repeater buildings, 

and well houses. Included in these facilities are 71 water systems, 113 sewer systems, and 

46 electrical distribution systems.

• Recreation Sites - The principal goal of recreation site maintenance is to protect visitor 

safety and resource values at 170 recreation sites with 350 buildings in western Oregon. In 

2013, the program will continue to provide garbage disposal, service sanitation facilities, 

safe drinking water, as well as repair and maintenance of facilities, and mitigate hazards. 

The BLM has 18 recreation sites in western Oregon participating in the Recreation Fee 

program. Fee collections will be returned to these sites in 2013 to address critical 

maintenance needs.

• Transportation - The western Oregon transportation system consists 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. Maintenance work is completed on high-priority roads, 

trails, and bridges that are essential to ensure an acceptable level of public safety, 

management access for fire protection and to carry out BLM management objectives. Most 

system roads and trails used by the public are maintained using appropriated funds. Timber 

haul roads, or “fee roads,” are maintained using road maintenance fees that are collected 

from commercial users and deposited into a permanent operating fund for road 

maintenance, as well as appropriated funds.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 17

2011 

Actual

2012 

Enacted

2013 Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Operations ($000) 2,120 2,081 +0 -2,081 0 [-2,081]

FTE 20 20 -20 0 [-20]

Other Major Resources:

POF: Road Maintenance (9110) 75 88 +0 +0 88 +0

Summary of 2013 Program Changes for Operations

Request Component ($000) FTE

Program Changes:

• Transfer Funds to O&C Operations and Annual Maintenance Subactivity -2,081 -20

TOTAL, Program Changes -2,081 -20

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Western Oregon Operations program is $0 and 0 FTE, a net 

change of -$2,081,000 and -20 FTE from the 2012 enacted level due to an internal program 

transfer. Beginning in 2013, BLM is proposing to fund Western Oregon Operations in the new 

O&C Operations and Annual Maintenance subactivity. Please review the O&C Operations and 

Annual Maintenance subactivity write-up for a further discussion of this change.

Activity: Western Oregon Transportation and Facilities 

Maintenance

Subactivity: Operations
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 18

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Chapter XI – Oregon and California Grant Lands Page XI - 19

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Annual Maintenance ($000) 7,977 7,864 +0 -7,864 0 [-7,864]

FTE 56 56 -56 0 [-56]

Summary of 2013 Program Changes for Annual Maintenance

Request Component ($000) FTE

Program Changes:

• Transfer Funds to O&C Operations and Annual Maintenance Subactivity -7,864 -56

TOTAL, Program Changes -7,864 -56

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Western Oregon Annual Maintenance program is $0 and 0 FTE, a 

net change of -$7,864,000 and -56 FTE from the 2012 enacted level due to an internal program 

transfer. Beginning in 2013, BLM is proposing to fund Western Oregon Annual Maintenance in 

the new O&C Operations and Annual Maintenance subactivity. Please review the O&C 

Operations and Annual Maintenance subactivity write-up for a further discussion of this change.

Activity: Western Oregon Transportation and Facilities 

Maintenance

Subactivity: Annual Maintenance
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 20

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Chapter XI – Oregon and California Grant Lands Page XI - 21

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Deferred Maintenance 

($000) 1,039 1,039 0 -1,039 0 -1,039

FTE 3 3 -3 0 -3

Summary of 2013 Program Changes for Deferred Maintenance

Request Component ($000) FTE

Program Changes:

• Transfer to MLR Deferred Maintenance and Capital Improvements 

subactivity -1,039 -3

TOTAL, Program Changes -1,039 -1

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Western Oregon Deferred Maintenance program is $0 and 0 FTE, 

a net change of -$1,039,000 and -3 FTE from the 2012 enacted level. Beginning in 2013, BLM 

is proposing to fund Western Oregon deferred maintenance in the MLR Deferred Maintenance 

and Capital Improvements subactivity. Please review the MLR Deferred Maintenance and 

Capital Improvements write-up in Section IV for a further discussion of this change.

Activity: Western Oregon Transportation and Facilities 

Maintenance

Subactivity: Deferred Maintenance
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 22

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Chapter XI – Oregon and California Grant Lands Page XI - 23

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Operations and Annual 

Maintenance ($000) [10,097] [9,945] +85 +9,945 10,030 +85

FTE [76] [76] +0 76 +0

Summary of 2013 Program Changes for Deferred Maintenance

Request Component ($000) FTE

Program Changes:

• Transfer Funds from O&C Operations and O&C Annual Maintenance 

Subactivities +9,945 +76

TOTAL, Program Changes +9,945 +76

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for Western Oregon Operations and Annual Maintenance program is 

$10,030,000 and 76 FTE, a net change of +$9,945 and +76 FTE from the 2012 enacted level. 

The net change includes an internal transfer of +$9,945,000 and +76 FTE into this new 

subactivity from the former Operations subactivity ($2,081,000 and 20 FTE) and the former 

Annual Maintenance subactivity ($7,864,000 and 56 FTE). Overall, the combined funding for 

the former O&C Operations and Annual Maintenance program is equal to the 2012 enacted 

level, with an adjustment for fixed costs.

Create New O&C Operations and Annual Maintenance Subactivity (+$9,945,000/ +76 FTE) 

- The funding for this new subactivity comes from the consolidation of the O&C Operations and 

Annual Maintenance programs. The consolidation will promote program management 

efficiencies and better recognize the overlap between the type of work that is funded and 

performed within these two programs.

PROGRAM OVERVIEW

Program Components - Operations

The Western Oregon Transportation and Facilities Maintenance program provides for the 

maintenance of 170 recreational facilities within the O&C lands of western Oregon. Operational 

activities include functional utilities (electricity, water and sewer), fuel, janitorial services, window 

cleaning, rodent and pest control, grounds upkeep, and waste management, including 

Activity: Western Oregon Transportation and Facilities 

Maintenance

Subactivity: Operations and Annual Maintenance
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 24

personnel to perform these activities. Fully operational, clean, and pleasant appearance of 

recreational facilities is important to the public.

Developed recreation sites utilize hosts and volunteers to assist maintenance personnel in fee 

collection, security, maintaining restrooms, trails, and campgrounds during high seasonal use 

periods, May through September. Recreational areas including dispersed sites that are open 

year-round are maintained to a lesser degree during low use periods due to weather conditions

such as seasonal rain, wind, or snow. Eighteen of the 170 recreation sites participate in the 

Recreation Site Fee program. 

Program Components – Annual Maintenance

Annual maintenance activities help maintain the BLM’s investment in the transportation network, 

assure the roads function as designed, preserve public safety, and minimize environmental 

impacts especially relating to water quality and soil erosion. BLM manages and is responsible 

for maintenance on approximately 14,200 miles of BLM road in western Oregon; 235 

administrative and recreation sites with 512 buildings; and 3 dams. Annual maintenance 

activities focus on: 1) cleaning and repairing sites and buildings for safe public use, 2) keeping 

access roads open and serviceable for all users, and 

3) cleaning/repairing bridges and other road structures 

that receive the greatest public and commercial use. 

Roads are needed for access to BLM recreation and 

administrative sites, commercial uses, school bus 

routes and emergency vehicle routes, and access to 

private and other local, state, and federal lands. 

Roads have the potential to cause environmental 

damage due to excess surface erosion and sediment 

movement.

Western Oregon’s annual maintenance program’s first 

priority is to perform maintenance on major access 

roads; roads with active Federal, State or private timber haul; and roads that provide access to 

developed recreation sites and other important administrative complexes. Sharing of equipment 

and resources between BLM District offices has produced efficiencies for accomplishing 

maintenance targets.

Critical Factors

The following factors can impact program performance:

• Heavy rains during the winter season can cause maintenance priorities to change, 

sometimes requiring a change from the original planned program of work. 

• Closures during fire season can redirect priorities for road maintenance to coastal 

locations

• State of Oregon Parks and Recreation surveys indicate that public use of BLM’s 

recreational facilities and the roads accessing them is increasing. 

Prioritization System

Maintenance priorities are established at the district and field office level annually using a 

Maintenance Operation Plan (MOP). This prioritization is based on roads and facilities that are 

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 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 25

essential to the districts and have the highest impact on the health and safety of employees, 

contractors, and the general public. The District Maintenance Organizations then schedule their 

work based on the workforce and equipment needed to perform the prioritized tasks. 

Emergency repair work that is identified as high priority work by the district is completed as soon 

as the district is notified of funding being available. The road maintenance organization 

encourages sharing of equipment and personnel between districts to accomplish high priority 

work where additional workforce or equipment are needed. Partnerships consisting of 

maintenance agreements with counties or other local organizations are utilized as needed.

Other Funding Sources

Most system roads and trails used by the public are maintained using appropriated funds. 

Timber haul roads, or “fee roads,” are maintained using road maintenance fees that are 

collected from commercial users and deposited into a permanent operating fund for road 

maintenance, as well as appropriated funds. Recreation facility maintenance activities are 

partially funded by the O&C recreation management program, use fees, and the NLCS program.

2013 PROGRAM PERFORMANCE

In 2013, the Western Oregon Transportation and Facilities Management program proposes to:

• Complete routine annual maintenance of 50 buildings at recreation sites

• Complete annual maintenance on 87 bridges

• Complete routine annual maintenance of 137 buildings at BLM administrative sites

• Perform road maintenance on 1,866 miles of roads

• Complete routine annual maintenance on 51 administrative sites

• Conduct operational maintenance on 31 recreation buildings in six O&C Districts

• Conduct operational maintenance consisting of grounds upkeep for landscaping 

camping and picnic sites, shelters, interpretive displays, wells, and waste stations at 57

recreation sites.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 26

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Chapter XI – Oregon and California Grant Lands Page XI - 27

Activity: Western Oregon Resources Management 

2013

2011 2012

Fixed 

Costs 

&Related 

Changes

Program 

Changes Budget

Change 

from 2012 

Enacted

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-)

Forest Mgmt. $ 31,666 32,060 +301 +1,500 33,861 +1,801

FTE 273 273 0 +3 276 +3

Reforestation & 

Forest 

Development $ 24,038 23,622 +150 -1,211 22,561 -1,061

FTE 156 156 0 -6 150 -6

Other Forest 

Resources $ 37,472 36,616 +330 0 36,946 +330

FTE 262 262 0 0 262 0

Resource 

Mgmt. Planning $ 3,753 5,601 +34 0 5,635 +34

FTE 27 36 0 0 36 0

Total Activity $ 96,929 97,899 +815 +289 99,003 +1,104

FTE 718 727 0 -3 724 -3

The 2013 budget request for the Western Oregon Resources Management activity is 

$99,003,000 and 724 FTE, a net program change of +$289,000 and -3 FTE from the 2012 

enacted level.

ACTIVITY DESCRIPTION

The Western Oregon Resources Management program provides for the management of 2.4 

million acres of O&C and Coos Bay Wagon Road grant lands, and intermingled Public Domain 

lands. This program is focused on the multiple objectives of restoring and maintaining the 

ecological health of forested watersheds and aquatic resources; providing a well-distributed 

system of large blocks of late-successional and old-growth forest habitat for the benefit of

Bureau sensitive and Federally listed species that depend on older forest conditions; and 

providing a sustainable supply of timber products.

The O&C forestry program is implementing the strategic direction to pursue desired outcomes 

that are based in active management. Through BLM’s active forest management, forest 

landscapes are resilient, and terrestrial and aquatic species are conserved. In addition, these 

landscapes support sustainable communities and provide for their health and safety. The 

forestry program achieves multiple objectives that focus on active management that produce 

forest health and resiliency, wildlife habitat development, species recovery, and community 

support by way of timber outputs and jobs.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 28

The Bureau focuses on developing landscape level solutions to resource management issues 

and actively collaborates with federal, state, local, and tribal agencies as well as private 

organizations and individuals during the planning and implementation of management activities 

on Bureau administered lands. The BLM often develops forest management projects using a 

landscape or watershed approach to determine the appropriate suite of treatment activities. At 

the landscape planning scale an integrated approach is taken to addressing multiple objectives 

such as timber production, fuels reduction, and fish and wildlife habitat considerations. This 

integrated approach can be an efficient model for accomplishing a variety of on-the-ground 

treatments.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 29

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Forest Management ($000) 31,666 32,060 +301 +1,500 33,861 +1,801

FTE 273 273 +3 276 +3

Other Major Resources:

POF: Timber Pipeline 

Restoration (58xx) 4,048 3,883 0 -1,773 2,110 -1,773

POF: Forest Ecosystem 

Health & Recy (5900) 3,793 4,603 0 +213 4,816 +213

Major Program IT 

Investments:

Legacy Rehost (LR2000) 58 60 0 0 60 0

Geographic Coordinate Data 

Base (GCDB) Data Prep 

Software 83 0 0 0 0 0

Collection and Billing System 

(CBS) 50 50 0 0 50 0

Summary of 2013 Program Changes for Forest Management

Request Component ($000) FTE

Program Changes:

• Increase Funding for Secretary’s W. Oregon Strategy +1,500 +3

TOTAL, Program Changes +1,500 +3

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Western Oregon Forest Management program is $33,861,000

and 276 FTE, a program change of +$1,500,000 and +3 FTE. 

Increase Base Funding for Secretary’s W. Oregon Strategy (+$1,500,000) - The Secretary’s 

Western Oregon Strategy focuses on increasing the volume of timber offered for sale, 

supporting key resource management planning objectives, increasing surveys of rare, 

uncommon or endangered species; facilitating joint development and implementation of a 

revised recovery plan for the northern spotted owl; and providing for landscape-level timber sale 

project environmental analysis.

The 2013 requested increase of $1,500,000 will increase the volume of timber offered for sale in 

the fiscal year, and will be directed among the 6 western Oregon districts to perform work in 

timber sale planning, layout and design, engineering, and sale appraisal. This will result in a 4 

million board foot increase in the 2013 O&C volume offered, from 193 million board feet in 2012

to 197 million in 2013. Because the process of offering timber at auction is on a 3 to 5 year 

Activity: Western Oregon Resources Management

Subactivity: Forest Management
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 30

planning cycle, there is a delay between an initial increase in budget and realization of 

completed timber sales. Therefore, the full impact of the increase will be felt in the volume 

offered in 2014.

This increased volume offered in 2013 and out years supports the economic objectives of the 

Secretary’s Western Oregon Strategy for BLM forestland in western Oregon by providing an 

annual sale harvest more similar to the amount offered in the years immediately prior to the 

July, 2009, withdrawal of the revised resource management plans.

It is expected that implementation of the pilot projects (based on Professor Norm Johnson's and 

Professor Jerry Franklin's restoration principles) will demonstrate a landscape level approach to 

forest ecosystem restoration through active management that could be a possible alternative in 

the future for managing forests using their “early successional harvest” strategy. The Medford 

pilot project has been sold and harvest has been initiated. The Roseburg and Coos Bay pilots 

are expected to be sold in 2012 with harvesting initiated in 2012 or 2013.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 31

Performance Change

O&C FOREST MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 1: Manage timber and forest products resources

Strategic Plan Measures

Volume of wood products offered

consistent with applicable 

management plans (Public Domain 

& O&C) (SP)

292 270 296 220 240 223 209 -14 239

Comment: The net reduction of 14 MMBF in 2013 planned performance is due to a reduction of 18 MMBF in the public domain and an increase of 4 MMBF in O&C (Public 

domain 12 MMBF, O&C 197 MMBF).

Contributing Programs: O&C Forest Management; Forestry Management
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 32

PROGRAM OVERVIEW

The BLM often develops forest management projects using a landscape or watershed approach 

to determining the suite of treatment activities. At the landscape planning scale, an integrated 

approach is taken to addressing multiple objectives such as timber production, fuels reduction, 

and fish and wildlife habitat considerations.

The Western Oregon Forest Management program includes all costs associated with 

management, maintenance, and enhancement of forests and woodlands 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.

The Western Oregon Forest Management program includes:

• Forest landscape planning;

• Forest inventory,

• Trespass prevention and investigation,

• Maintenance of existing right-of-way agreements,

• Restoration of late-successional and old-growth forest structure,

• The sale of timber and other forest and vegetative products including such products as 

fuel wood, biomass, ornamentals, medicinal plants, and edibles such as fruits and fungi.

New Energy Frontier - The Western Oregon Forest Management program also supports the 

Secretary’s New Energy Frontier Initiative. The Western Oregon timber sale program regularly 

makes biomass available to timber sale purchasers in the form of logging residue and actively 

promotes the sale of firewood to the general public for domestic heating. Land treatment 

service contracts are now required to allow for removal of biomass material from project areas 

when available and economically feasible.

Right-of-Way Agreement Program - BLM continues to manage its long-standing reciprocal rightof-way agreement program in western Oregon, providing access to the geographically 

intermingled owners of private timberland, while securing access for BLM management and the 

public to the O&C lands.

Integrated Vegetation Management Group - The Forest Management program cooperates with 

the USFS in the Integrated Vegetation Management Group (IVMG) to support projects that 

overlap Forest Service and BLM lands. The IVMG consists of representatives from National 

Forest Systems, State and Private Forestry, the USFS Pacific Northwest Research Station, and 

the Bureau of Land Management in the disciplines of fire and fuels management, soil and water, 

air quality, wildlife, range, silviculture, biomass utilization/forest products, and GIS. Membership 

in the group is not restricted to these disciplines.

Long Term Vision

The BLM’s lands and realty program will remain a priority in western Oregon, including 

administration of logging road right-of-way permits and reciprocal right-of-way agreements, 

communication site management, land sales and exchanges, realty compliance inspection, and 

trespass abatement.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 33

2013 PROGRAM PERFORMANCE

In 2013, BLM will increase the sale target by 4 MMBF from the 2012 planned performance 

target. In 2013, the O&C Forest Management program proposes to:

• Offer 197 million board feet (MMBF) of timber for sale

• Inventory 500 acres of forest and woodland vegetation

• Improve forest health on approximately 2,000 acres with restoration sales

• Harvest 180 MMBF of volume under contract from the current and previous year’s 

operational timber sales (normal 3-year contracts)

The BLM’s ability to meet these performance targets in 2013 may be affected by the ruling on 

the appeal for the 2011 Settlement Agreement for Survey and Manage. The ruling has the 

potential to impact the program of work, as do continued challenges in project level NEPA 

regarding Survey & Manage and red tree vole analysis.

The BLM’s ability to meet these performance targets in 2013 may also be affected by the NEDC 

v. Brown (State of Oregon) litigation where the plaintiff alleges that non-point source discharges 

from ditches and culverts associated with the timber hauling roads are point source discharges. 

A Ninth Circuit Panel decision held that logging road discharges require point source pollution 

discharge permits. This would classify them as industrial storm water discharges subject to EPA 

Phase I NPDES permitting. The State of Oregon requested review by the Supreme Court. In 

December 2011, the Supreme Court asked the Solicitor General to file a brief expressing the 

view of the United States. In December 2011, PL 112-74 provided temporary relief until 

September 2012 that blocks the EPA or state regulators from requiring clean water permits for 

timber roads. 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 34

Performance Overview

O&C FOREST MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 1: Manage timber and forest products resources

Strategic Plan Measures

Percent of allowable sale quantity 

timber offered for sale consistent 

with applicable resource 

management plans. (SP)

86% 

174/ 203

31%

155/ 502

86% 

174/203

70% 

142/ 203

70% 

143/ 203

70% 

140/ 203

72% 

146/ 203 +2% 74% 150/ 203

Comment: Cost per million board foot (MMBF) is based on the total program cost divided by the annual target.

Volume of wood products offered 

consistent with applicable 

management plans (Public Domain 

& O&C) (SP)

292 270 296 220 240 223 209 -14 239

Comment: The net reduction of 14 MMBF in 2013 planned performance is due to a reduction of 18 MMBF in the public domain and an increase of 4 MMBF in O&C (Public 

domain 12 MMBF, O&C 197 MMBF).

Contributing Programs: O&C Forest Management; Forestry Management

Supporting Bureau Measure

Administrative cost per thousand 

board feet of timber offered for sale. 

(BUR)

$181 $228 $182 $225 $217 $200 $200 $0 $200 

**O&C timber inventory has two components: (1) Routine stand exams for timber sale planning that runs about 5,000 acres per year; and (2) Current Vegetation Survey 

(CVS) plot re-measurement (extensive forest inventory) that occurs every three years with accomplishments lapsing over into the next FY. For this reason, the acreage 

target for inventory acres fluctuates from year to year. Funding for CVS inventory may come from several programs and is not uniformly distributed between programs on 

an annual basis.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 35

Activity: Western Oregon Resources Management

Subactivity: Reforestation and Forest Development

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Reforestation & Forest 

Development ($000) 24,038 23,622 +150 -1,211 22,561 -1,061

FTE 156 156 -6 150 -6

Summary of 2013 Program Changes for Reforestation & Forest Development

Request Component ($000) FTE

Program Changes:

• General Program Decrease -1,211 -6

TOTAL, Program Changes -1,211 -6

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Western Oregon Reforestation and Forest Development

program resulted is $22,561,000 and 150 FTE, a program change of -$1,211,000 and -6 FTE 

from the 2012 enacted level. 

General Program Decrease (-$1,211,000/ -6 FTE) The proposed funding reduction would 

delay or reduce forest vegetation inventories, reforestation treatments, stand maintenance and 

improvement treatments, monitoring, and inventory for the presence of noxious or invasive 

weed species from the level completed in 2012. The reduction would not have an effect on 

the Secretary’s Western Oregon Strategy for forest management in the short term. 

PROGRAM OVERVIEW

Western Oregon Reforestation & Forest Development program includes all costs associated 

with reforestation and forest development on the Public Lands (O&C, CBWR, and PD) in 

Western Oregon. This includes reforestation-related tasks as well as those associated with 

intermediate stand management and forest health treatments in young growth forest stands. 

This program sustains forest management and forest restoration through active management to 

achieve healthy and productive watersheds. 

The BLM engages in several collaborative efforts to maintain and enhance ecosystem function 

such as the Medford Small Log Collaborative, Consolidated Seed Orchard MOU, Tillamook 

Watershed restoration projects, collaborative LiDAR acquisition and testing, Klamath Falls 

juniper utilization, sage grouse habitat restoration, and science support for research conducted 

by the USGS and USFS Research Stations.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 36

The focus areas for the Western Oregon Reforestation and Forest Development program 

include:

• Forest regeneration and restoration activities on commercial and non-commercial forest 

lands that result in the establishment of young stands including habitat restoration 

activities in riparian and other reserve areas.

• Intermediate stand management activities in young growth forests that promote forest 

growth, health, value enhancement, risk reduction and structure development to provide 

for future timber harvest, biomass utilization, habitat requirements, and fire recovery.

• Forest health treatments to control the spread of forest pathogens and insects in order to 

maintain healthy and productive forests.

• Forest monitoring and adaptive management assessments that document the success 

of active management in achieving stand objectives while providing for the sustainable 

harvest of timber.

• Support for non-native and noxious weed management in other programs including 

timber harvest, biomass recovery, and fuels management.

• Forest inventory, data acquisition, and consolidation of data storage and retrieval 

capabilities to facilitate coordination with other programs. 

• Participation in regional research cooperative sciences with other Federal and State

resource management agencies and universities to support research on developing 

technologies and management activities.

• Coordination of technology transfer and training programs that provide direct support for 

the silviculture program staff.

• Production of seed and seedlings better adapted to the potential effects of climate 

change and potential species migration. 

BLM will continue to participate in the Secretary’s pilot projects in the Coos Bay, Roseburg and 

Medford BLM Districts. Participation will include development of site-specific prescriptions,

provision of baseline information for effectiveness monitoring and support of stewardship 

opportunities in non-commercial stands.

Cooperative Landscape Conservation

The BLM’s Reforestation and Forest Development program is implementing the Cooperative 

Landscape Conservation Adaptation Initiative through climate change management planning 

and carbon sequestration. The BLM participates with the Task Force on Adapting Forests to 

Climate Change, a cooperative project that addresses how forest managers will modify seed 

zones in response to future climate conditions.

The Oregon/Washington BLM cooperates with the U.S. Forest Service PNW Research Station 

to study the potential of assisted migration of Douglas-fir in response to future climate 

conditions. In cooperation with Oregon State University, the Oregon/Washington BLM field 

tests the drought resistance of seed produced from the Tyrrell and Horning seed orchards.

The management of O&C lands naturally involves the sequestration of carbon as part of forest 

stand growth. The Reforestation and Forest Development program increases forest growth 

through intensive management of forest stands, thereby creating a corresponding increase in 

carbon sequestration on western Oregon O&C timberlands. The BLM cooperates with the 

Environmental Protection Agency, Natural Resource Conservation Service, U.S. Forest Service 

PNW Research Station, Oregon State University, and Weyerhaeuser Company to develop 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 37

methods of rapidly estimating above and below ground carbon stocks and sequestration in 

forest ecosystems in the Pacific Northwest.

Intermediate Stand Management and Forest Health Strategies

The BLM cooperates with the Forest Service, Oregon Department of Forestry, Oregon 

Department of Agriculture, and Oregon State University to treat and monitor sudden oak death 

in Curry County, Oregon in accordance with a federally mandated quarantine zone.

The BLM implements intermediate stand management activities using a variety of authorities 

including stewardship contracts, service contracts, and timber sale contracts to offer biomass 

and improve forest health and enhance growth in young growth stands. These Intermediate 

Stand Management projects integrate management activities with other functional areas to 

achieve multiple resource objectives.

2013 PROGRAM PERFORMANCE

The BLM continues to adopt and develop techniques and processes that will help to better 

manage forest resources for both current and future use and enjoyment. The Reforestation and 

Forest Development program uses active management strategies to produce healthy and 

productive forests capable of meeting long-term timber and habitat goals while preserving future 

management options. The BLM investigates the use of emerging technologies such as LiDAR 

to provide better and more cost-effective information for decision makers.

The focus of the program of work is changing as the age distribution of forest stands shifts 

across the landscape. The shift is from stand establishment to maintenance and enhancement 

of intermediate age stands. Intermediate stand management activities are more.

In 2013, the O&C Reforestation and Forest Development program proposes to:

• Treat 18,500 acres of matrix forests to assure adequate growth

• Treat 9,000 acres of forest reserve to assure growth and habitat development

• Monitor 44,700 acres of treatments completed

• Offer 25,000 tons of biomass for sale

• Inventory 26,900 acres of forest or woodland vegetation

• Inventory 22,700 acres for the presence of invasive or noxious weeds

• Treat 5,500 acres of noxious and invasive weeds or pathogens, including the fungus 

involved in sudden oak death

• Produce 1,000 pounds of Improved Seed 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 38

Performance Overview

O & C REFORESTATION AND FOREST DEVELOPMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Longterm 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America’s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, 

wildlife refuges, and BLM lands. 

Strategic Plan Measure

Number of DOI acres restored to 

the condition specified in 

management plans. (SP)

1,000,156 950,157 1,136,759 950,000 848,477 485,119 511,000 +25,881 700,000

Comment: In 2012, the enacted budget will result in a greater number of permit renewals. Subsequently, in 2013, the number permit renewals will sustain a 

moderate increase in comparison to the 2011 enacted level with the addition of the administrative fee proposal.

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 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 39

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Other Forest Resources 

($000) 37,472 36,616 +330 0 36,946 +330

FTE 262 262 0 262 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Western Oregon Other Forest Management program is 

$36,946,000 and 262 FTE.

PROGRAM OVERVIEW

The Other Forest Resources Management subactivity includes funding for four programs in 

western Oregon that are critical to effective multiple-use management across the BLM lands in 

western Oregon. They are Rangeland Management; Recreation Management; Soil, Water and 

Air Management; and Wildlife and Fish Habitat Management.

BLM helps address the public demand for recreation, clean water and productive soil in general, 

and fish and wildlife-related recreational opportunities in particular. This program provides some 

support services necessary for fish and wildlife environmental clearances related to the 

management of the BLM forestlands in western Oregon. This program supports species and 

habitat management and associated data collection, aquatic restoration for clean water and fish 

habitat, as well as the timber sale program in the form of surveys, clearances, interdisciplinary 

team participation, and environmental assessment preparation. In turn, the Forest Management 

program supports habitat management within the reserve land use allocations designed to 

benefit fish and wildlife species in the long term.

Means and Strategies

The Western Oregon Other Forest Resources Management program uses collaborative 

cooperative conservation principles by engaging commodity users, private groups, local 

communities, government agencies, and other stakeholders in planning and implementing 

management activities. For example, the BLM works with the U.S. Forest Service to implement 

an interagency Special Status Species Program and for Clean Water Act compliance activities 

that extend across differing administrative boundaries. Applying the concept of “Service First” 

and sharing skills accommodates an interagency approach toward resource conservation. The 

BLM also partners with The Nature Conservancy, Nature Serve, and local watershed councils to 

share data and planning strategies that extend across private, state, and federal jurisdictions.

Activity: Western Oregon Resources Management

Subactivity: Other Forest Resources Management 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 40

• Partnering improves administrative efficiencies, and 

decreases the cost of program administration. In 

the Soil, Water, and Air program, key partnerships

with the U.S. Forest Service, the Environmental 

Protection Agency and the Oregon Department of 

Environmental Quality have contributed toward 

administrative streamlining, restoration prioritization, 

water quality standard updates- all of which 

contribute to BLM’s role as a Designated

Management Agency under the Clean Water Act.

• Management of invasive species benefits through 

the coordination with other landowners and land 

management agencies to control the spread of 

noxious weeds in high-priority habitats that include sensitive species. Eradication efforts

focus on rapid detection and an early response and prevention, including seeking 

approval for the use of additional and more effective herbicides.

Critical Factors

The spread of existing and introduction of new species of noxious weeds continues to occur 

throughout the O&C primarily along transportation routes. This issue is becoming more 

prevalent as a result of differing land ownership patterns, treatment strategies, and lack of 

prevention measures along all road systems. To limit and reduce the spread of the Port-Orfordcedar root disease and sudden oak death, mitigation measures are implemented, monitored, 

and constantly improved upon along road systems in infected and adjacent areas. Other federal 

agencies, especially the Forest Service, implement similar measures on their road systems, and 

other State, county, and private landowners may treat areas with herbicides or mechanical 

means. 

Adequate road maintenance continues to be a problem throughout much of the O&C lands. 

With less harvest activities over the past two decades, regular maintenance of haul routes 

associated with timber sales has been reduced. As a result, many roads that were accessible in 

the past are now threatened with encroachment of thick vegetation and slough and slide 

material that has all but closed many road systems. This has reduced access for forest 

management activities and reduced access to the public for recreation opportunities. 

2013 PROGRAM PERFORMANCE

Rangeland Management - The Rangeland program consists of 95 grazing allotments (52 

active and 43 vacant) covering about 352,000 acres of the Medford District, and 11 allotments 

covering about 14,400 acres in the Klamath Resource Area, Lakeview District. Nine allotments 

in the Medford District that provide 2,714 Animal Unit Months of forage are partially or 

completely within the Cascade-Siskiyou National Monument (CSNM). 

White water rafting on the Rogue River.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 41

In 2013, the O&C Rangeland Management program proposes to:

• Issue 7 grazing allotment permits/leases

• Maintain 49 grazing use authorizations 

• Complete 18 shrub, grassland, woodland and forest projects related to range 

management 

• Monitor 5 grazing allotments

• Inspect 8 grazing allotments for compliance

• Complete 4 Land Health Evaluations 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 42

Performance Overview

O&C OTHER FOREST RESOURCES MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Longterm 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America's Landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national 

parks, wildlife refuges, and BLM lands. 

Number of DOI acres restored to the 

condition specified in management 

plans. (SP)

1,000,156 950,157 1,136,759 

950,000 

 

848,477 485,119 511,000 +25,881 700,000

Comment: In 2012, the enacted budget will result in a greater number of permit renewals. Subsequently, in 2013, the number permit renewals will sustain a 

moderate increase in comparison to the 2011 enacted level with the addition of the administrative fee proposal.

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. 

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 2: Provide for Sustainable Forage and Grazing

Percent of grazing permits and leases 

processed as planned consistent with 

applicable resource management 

plans. (SP)

84% 

2177/ 

2,600

44%

2,554/

5,835

30% 

1,933 / 

6,484

31% 

1,933/ 

6,312

36% 

1,945/ 

5,383

36% 

2,396/ 

6,685

33% 

2,100/ 

6,300

-3%

55% 

2,500/ 

4,500

Contributing Programs: Range Land Management; National Monuments and National Conservation Areas; O&C Range Management . 

Number of grazing administration 

actions conducted. (BUR)

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

New 

Measure 

in 2011

96% 

30,006/ 

31,102

96% 

29,000/ 

30,000

96% 

27,000/ 

28,000

0%

96% 

27,000/ 

28,000

Contributing Programs: Range Land Management; National Monuments and National Conservation Areas; O&C Range Management . 
Bureau of Land Management Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 43

Recreation Management – Public lands managed by the BLM (including those in western 

Oregon) provide a very diverse range of recreation opportunities in the western United States. 

The Bureau’s recreation and visitor services program oversees a broad and complex set of 

recreation-related and social management activities and programs.

Americas Great Outdoors Initiative will be a focus in 2013. The program will also promote and 

expand outdoor recreation for youth and support the Secretary’s Youth and Careers Initiative. 

Another high priority will be improving public access and protecting resources through 

Comprehensive Travel and Transportation Management (CTTM).

Developed site planning, monitoring, and deferred maintenance issues will continue as high 

priorities. Interpretation and tourism incentives will be developed in collaboration with 

cooperating partners to benefit local and non-resident recreationists. Rivers and trails will be 

managed to protect their special values, natural resources, minimize user conflicts, promote a 

quality recreational experience in a preferred setting, and to promote public safety.

Permits will be issued at campgrounds, day-use areas, and for special events across the 

districts O&C wide, meeting the public user demand within the state. Tens of thousands of 

volunteer project hours will be managed along with long-term recreation partnerships between 

BLM and user constituencies. Use monitoring and impacts to key resources of these recreation 

programs will be documented and brought to the appropriate management attention. Inventory, 

monitoring, and evaluation of recreation resources and areas will be maintained at current-year 

levels.

In 2013, the O&C Recreation Management program proposes to:

• Inventory Recreation Resources (2,400 acres) 

• Assess Linear Recreation Resources ( 250 miles)

• Assess Nationally Designated Rivers and Trails (50 number)

• Prepare Recreation Activity Plans (4 number)

• Process Commercial and Group Special Recreation Permits (290 number)

• Issue and Manage Recreation Use Permits (45,000 number)

• Evaluate Recreation Areas (15,000 acres) 

• Monitor Wilderness and Wilderness Study Areas (291 acres)
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page - XI- 44

Performance Change Overview

O&C WILDLIFE HABITAT MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Longterm 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America’s landscapes

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, including States. 

Strategic Plan Measure

Number of threatened and 

endangered species recovery 

activities implemented. (SP) 

New

in 2011

New

in 2011

New

in 2011

New

in 2011 1,328 1,500 1500 0 1500

Contributing Programs: Threatened and Endangered Species Management; O&C Wildlife Habitat Management.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 45

Soil, Water, and Air Management - The Soil, Water, and Air program is focused on designing 

projects and implementing BLM Water Quality Restoration plans in priority Category 4A subbasins (305 B report) and in priority Category 5 sub-basins (305 B report) which include the 

State of Oregon’s 303(d) list of waters not meeting water quality standards. Program objectives 

emphasize the protection of drinking water sources and improvement of aquatic species habitat 

through restoration of water quality and improvement of aquatic and riparian conditions while 

incorporating stakeholder input and involvement in development of program priorities. The 

program involves long-term coordination and collaboration with the fisheries and riparian 

management programs of multiple agencies and landowners that includes managing for soil 

health and productivity along with upland habitat concerns relating to noxious weed and other 

invasive species management, soil stabilization, upland forest and rangeland health, habitat for 

sensitive species, and the Bureau’s wild and scenic rivers.

Much of the work involves assessment, monitoring, and restoring of watersheds to comply with 

the Clean Water Act and the Safe Drinking Water Act. This is accomplished through 

development and implementation of restoration projects and activities defined within the context 

of water quality restoration plans (WQRP’s) which support the State of Oregon’s Total Maximum 

Daily Loads (TMDLs) program. 

Additionally, the program funds studies necessary to establish in-stream flows that are required 

to support wild and scenic river outstandingly remarkable values; work to obtain or maintain 

Federal reserve water rights, and inter-agency agreements with the United States Geological 

Survey and Oregon State University to develop flow and water quality monitoring data 

necessary for developing National Environmental Policy Act planning documents.

The program supports the National Energy Policy Act of 2005 through involvement in the 

Federal Energy Regulatory Commission re-licensing process.

In 2013, the O&C Soil, Water, and Air program proposes to: 

• Inventory 144 water resources 

• Monitor air resources/climatic conditions at 11 sites 

• Monitor 140 water resources (stations – all parameters)
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 46

Wildlife and Fish Habitat Management – The Western Oregon Wildlife and Fish Habitat 

program combines habitat management and habitat restoration actions for fish, wildlife and 

botany with inventory and monitoring for key species of management concern. Management 

for, and monitoring of, specific habitat conditions to meet the requirements of the NWFP and the 

Settlement Agreement are critical elements of the program. The program is responsible under 

the NWFP, the Endangered Species Act, and Bureau policies for inventorying, monitoring, and 

managing habitat for 68 federally endangered or threatened species and 632 Bureau sensitive 

fish, wildlife and plant species.

Specific wildlife emphasis includes a partnership with the United States Forest Service to 

monitor northern spotted owl populations and increasing old-growth forest characteristics within 

the Late-Successional Reserve. Fisheries management emphasis is on continued cooperation 

with the Oregon Watershed Enhancement Board, watershed councils and the National Marine 

Fisheries Service to improve habitat for Pacific salmon species. 

Some work is focused on identifying priority watersheds from a landscape perspective to 

increase effectiveness of restoration efforts in contributing to recovery of listed salmonids. 

Identifying priority watersheds in conjunction with other Federal and State partners allows for 

identification of areas with overlapping priorities and the opportunity to form partnerships that 

leverage additional resources.

In 2013, the O&C Wildlife and Fish Habitat Management program proposes to:

• Inventory 165 miles of streams and riparian areas 

• Inventory 45,000 acres of wildlife and plant habitat 

• Implement 45 species recovery and conservation actions 

• Monitor 75 acres of lake and wetland habitat 

• Monitor 2,072,000 acres of terrestrial habitat 

• Monitor 625 species populations
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 47

Performance Overview

O&C WILDLIFE HABITAT MANAGEMENT

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 

to 2013

Longterm 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America’s landscapes

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, including States. 

Strategic Plan Measure

Number of threatened and 

endangered species recovery 

activities implemented. (SP) 

New

in 2011

New

in 2011

New

in 2011

New

in 2011 1,328 1,500 1500 0 1500

Contributing Programs: Threatened and Endangered Species Management; O&C Wildlife Habitat Management.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 48

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Bureau of Land Management Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 49

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Resource Management 

Planning ($000) 3,753 5,601 +34 0 5,635 +34

FTE 27 36 0 36 0

Major Program IT 

Investments:

ePlanning: 010-04-01-07-01-

0409-04 257 377 0 0 303 -74

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Western Oregon Resource Management Planning program is 

$5,635,000 and 36 FTE.

PROGRAM OVERVIEW

The Western Oregon Resource Management Planning program emphasizes the development, 

implementation, and maintenance of Resource Management Plans (RMPs) for BLM-managed 

land in Western Oregon communities.

There have been some recent developments related to western Oregon planning including 

ongoing litigation associated with the 2008 planning effort, a new recovery plan for the northern 

spotted owl, impending draft critical habitat for the northern spotted owl, revised critical habitat 

for the marbled murrelet, and Secretarial Pilot Projects to employ the ecological restoration 

principles developed by Drs. Norm Johnson and Jerry Franklin. As part of the Secretary’s 

Western Oregon Strategy, BLM is preparing to initiate the revision process for its Western 

Oregon Resource Management Plans. These revision efforts will draw upon the USFWS 

recovery plan and critical habitat designation for spotted owl, information from the Secretarial 

pilot projects, recommendations of the Secretarial Task Force, and the collaborative efforts of 

the Governor of Oregon to establish the foundation for the revision of the resource management 

plans for western Oregon. 

The revision efforts will also support landscape-scale spatial analysis done by a team of BLM 

employees and contractors, updated economic analyses, and logistical support for team 

members. It will be possible to draw upon existing analysis tools and the geo-spatial data base 

gained from the western Oregon plan revisions that were withdrawn by the Secretary in July, 

2009, reducing the overall cost and the time needed to complete the plan revision efforts 

Activity: Western Oregon Resources Management

Subactivity: Resource Management Planning
Bureau of Land Management Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 50

The major components of the program are:

• Development of Land Use Plans for western Oregon

• Assuring compliance with applicable laws, regulations, and policies, including, but not 

limited to, the O&C Act, the National Environmental Policy Act (NEPA), the Federal Land 

Policy and Management Act, the Endangered Species Act, and the Clean Water Act;

• Completing environmental assessments, categorical exclusions, and determinations of 

NEPA adequacy as appropriate for project implementation;

• Responding to appeals and lawsuits associated with projects and NEPA documents; and 

deploying and implementing e-planning.

Support for NEPA Compliance - the Western Oregon Resource Management Planning 

program supports implementation of the National Environmental Policy Act by providing a 

network of planning experts who provide oversight, extensive advice, and review of the various 

NEPA documents. High-quality NEPA documentation is a critical step in agency decision 

making and project implementation. In the implementation of project environmental 

assessments, the BLM anticipates some streamlining in project development and 

implementation.

2013 PROGRAM PERFORMANCE

In 2013, O&C Resource Management Planning program proposes to:

• Continue ongoing planning activities and support implementation of existing resource 

management plans

• Incorporate recommendations of the Western Oregon Task Force, which was appointed 

by the Secretary to advise the BLM and U.S. Fish and Wildlife Service directors on 

future planning efforts for the western Oregon O&C timberlands, into a new plan revision 

effort covering 6 current RMP’s. 

• Incorporate new designations of Critical Habitat by the U.S. Fish and Wildlife Service 

into the new planning effort.

• Respond and address issues and concerns raised during public scoping, cooperating 

agencies, and collaborative partners into the new planning effort.

• Complete the Scoping Report(s) for the new planning effort.

• Complete the Analysis of the Management Situation for the new planning effort.

• Develop and analyze a range of alternatives for the new planning effort.

• Develop and finalize analytical methodologies, assumptions and tools for the program.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 51

Activity: Western Oregon Information and Data

Systems 

Subactivity: Western Oregon Information Systems 

Operation and Maintenance

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Information Systems 

Operation & Maint. ($000) 2,124 1,923 +18 0 1,941 +18

FTE 14 14 0 14 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Western Oregon Information Systems Operation and 

Maintenance program is $1,941,000 and 14 FTE. 

PROGRAM OVERVIEW

This program provides infrastructure support for information systems in western Oregon. This 

activity enables resources data to be available to specialists in their day-to-day activities and 

encourages and supports development of data standards and data stewardship. This program 

develops and deploys basic, cross-cutting datasets and implements hardware and software 

infrastructures necessary to deliver information to the user’s desktop for uses such conducting 

Resource Management Plan activities and gathering consistent information in order to respond 

to congressional, state and local inquiries. Integral to this function is the examination and 

evaluation of emerging technologies and their role in resource management such as mobile GIS 

and internet mapping services. The Information Systems Operations and Maintenance program 

also continues to improve on responsive service to all BLM’s offices in Oregon and Washington. 

This service includes:

 Management of IT and telecommunications infrastructure, including desktops, laptops, 

networks, and software applications, and the skills base necessary to support BLM

employees. Integration of the IT infrastructure to resource specialists and management 

of the Web services for the region; 

 Providing the public with faster, more affordable and flexible information concerning the 

management of lands and resources; and,

 Ensuring that the systems BLM manages are secure, and the information collected and 

used in the management of lands and resources is reliable through a complete 

certification and accreditation process approved by the BLM Washington Office and the 

Department of the Interior.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 52

Managing Public Data - Western Oregon BLM benefits from its proactive management of 

resources, partnering with other agencies and current and available IT infrastructure to operate 

more efficiently. The trend is toward more centralized management of IT and GIS resources, 

supporting increased demand for these services. BLM has responded by instituting corporate 

spatial data standards to ensure integrity of GIS data and facilitate integration with the US 

Forest Service and other partners. Web-based collaboration and mapping tools are being 

implemented to enhance access and communication both within the BLM and with BLM’s

partners.

2013 PROGRAM PERFORMANCE

BLM has several on-going projects with other agencies. The Forest Service is working with 

BLM to more closely align both agencies’ GIS programs. The BLM is also collaborating with the 

Forest Service and USGS to build a single hydrographic data set for common use in the Pacific 

Northwest. Partnering with the Oregon LiDAR Consortium pools money from state, county and 

federal agencies to collect state-of-the art remote sensing data. 

In 2013, the IT support functions will continue to be consolidated by centralizing infrastructure 

and management of IT support services in the Oregon State Office. Continued implementation 

of web-based collaborative tools will enhance efficiencies in communication, while supporting 

more efficient work processes. Citrix technology is being used to centralize GIS infrastructure

so that all offices will eventually have access to the same corporate spatial data. Corporate 

standards for spatial data will continue to be established and implemented, reducing 

redundancy and strengthening the integrity of GIS data. Shared Service First positions and 

products with the Forest Service reduce costs while facilitating knowledge transfer and 

standardization of data, products and procedures between the agencies. Opportunities to 

expand the use of Service First authority to realize these benefits will continue to be explored. 

Finally, efforts will continue to more closely align the GIS functions and leverage the data 

resources of both agencies. 
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 53

2011 

Actual

2012 

Enacted

2013

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Nat'l Monu & Nat'l Cons 

Areas ($000) 831 748 +8 0 756 +8

FTE 9 9 0 0 9 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Western Oregon National Monuments & National Conservation 

Areas program is $756,000 and 9 FTE. 

PROGRAM OVERVIEW

The National Monuments and National Conservation Areas are components of the BLM’s 

National Landscape Conservation System (NLCS). Two new subactivities were established in 

2009, one each in the MLR and O&C. Funding for this subactivity is defined as the historic 

annually recurring costs for personnel and operations at each unit.

The two NLCS units funded under this subactivity are 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.

In support of the NLCS goals, in 2013 the BLM will focus on these components with base funds:

• 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. In addition to law enforcement 

officers, the program will use non-law enforcement rangers to provide improved visitor safety,

interpretation and resource protection support.

• Critical Inventories and Monitoring Programs — Inventories for baseline information define the 

critical resource values representative of each unit’s uniqueness, and the information they 

provide is essential to the development and implementation of management plans.

Activity: Western Oregon National Landscape 

Conservation System

Subactivity: National Monuments & National 

Conservation Areas
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 54

• Restoration — Both CSNM and YHONA are home to a variety of ecosystems. They offer 

outstanding opportunity for wildlife conservation and present the BLM an avenue for active and 

collaborative management of species such as the yellow-legged frog and prevent the need to 

list them under the Endangered Species Act. These areas contribute to protection and 

restoration of native plant and animal communities, including riparian habitats, corridors, and 

migration routes, to sustain and conserve public land resources affected by climate change, 

altered fire regimes, and invasive species.

• Comprehensive Travel and Transportation Management — Complete transportation planning 

in the CSNM. Rising unmanaged recreation use levels have correspondingly increased adverse

impacts to resources in the monument through increased erosion, vegetative damage, spread of 

weeds and invasive plants, and impacts to wildlife habitat. The travel management plan would 

address maintenance, signing, trails, monitoring protocols, and rehabilitation.

• High Quality Visitor and Community Education — Interpretation and environmental education 

improve visitor experience by providing information about the cultural, ecological, and scientific 

values of units, and also about the BLM’s balanced resource mission. The result is a greater 

connection with the public, a heightened sensitivity for protection of these areas, an appreciation 

of renewable resources, and fostering of citizen stewardship.

• Maintenance and Operations of Recreation Facilities — This program supports a number of 

education and visitor centers along with other facilities to enhance the visitor experience in the 

natural setting. Increased attention and visitation to CSNM and YHONA have created a growing 

need to operate and maintain facilities and to address critical visitor health and safety and 

resource management issues.

• Supporting Soda Mountain Wilderness Stewardship Plan Implementation – BLM will begin 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.

2013 PROGRAM PERFORMANCE

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. To fulfill 

the goals of the NLCS program at CSNM and YHONA, the BLM will continue to:

• Manage monuments and conservation areas in a manner that conserves, protects, 

and restores the values for which they were designated. Management shall be 

guided by each unit’s enabling legislation or proclamation.

• Effectively 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, nongovernmental organizations, and the public.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 55

• Recognize gateway communities as vital links to monuments and conservation areas

and where practical, locate developed recreation and interpretive facilities adjacent 

to NLCS lands.

In 2013, the O&C National Monuments & National Conservation Areas program proposes to:

• Implement resource management plans.

• Provide for safety and security on public lands by increasing law enforcement 

patrols.

• Conserve, protect, and restore landscapes and watersheds

• Inventory and conduct vegetative treatments to remove non-native, invasive, or 

noxious weeds, block and rehabilitate decommissioned roads

• Restore healthy ecosystem function by replanting native plants and reintroducing 

native species.

• Conduct critical assessments, inventories, and monitoring to understand and 

address the effects of climate change, exclusion of the normal fire regime, and

invasive species on land health.

• Implement conservation strategies and restoration actions resulting from completed 

ecoregional and subregional assessments.

• Provide public information, education, and interpretation, and maintain or expand 

visitor services.

• Coordinate and manage science agreements and grants, and support research 

projects

• Facilitate partnerships and collaboration with other federal agencies, tribes, the 

State, and work with volunteers, including youth ages 18-25, to complete projects.

• Acquire lands and easements in priority areas to re-establish habitat connections.
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 56

Performance Overview

WESTERN OREGON RESOURCES MANAGEMENT

NATIONAL MONUMENT & NATIONAL CONSERVATION AREA MANAGEMENT PERFORMANCE OVERVIEW

Measure

2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 1: Provide Natural and Cultural Resources Protection and Experiences

Goal 1: Protect America's Landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that 

comprise our national parks, wildlife refuges, and BLM lands.

Public Outreach Through Interpretation & Envir Educ 

(Programs/Events Delivered)

N/A 33 0 50 8 54 54 +0 60

Recreation Site Building Annual Maintenance 

(number of Buildings Maintained) N/A N/A 16 10 0 16 16 +0 16

Recreation Site Non-Building Annual Maintenance N/A 50 2 50 1 1 1 +0 50

Monitor Recreation Areas (acres) N/A 720 0 720 720 42 42 +0 720

Monitor Species Populations (Number) N/A 27 0 27 30 1 1 +0 27
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 57

BUDGET SCHEDULES

Account Symbol and Title

14X1116

Oregon and California Grant Lands Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Western Oregon Maintenance 0002 11 11 10

 Western Oregon Resource Management 0004 98 98 99

 Western Oregon Data Systems Operation & 

Management 0005 2 2 2

 Western Oregon National Monuments & NCA 0006 1 2 2

Total new obligations 0900 112 113 113

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 7 9 8

 Recoveries of prior year unpaid obligations 1021 2 0 0

 Unobligated balance (total) 1050 9 9 8

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 112 112 112

 Appropriation, discretionary (total) 1160 112 112 112

 Discretionary, Appropriations Committee

 Policy Outlays:

 Baseline Outlays:

Total budgetary resources available 1930 121 121 120

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 9 8 7

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 (gross) 3000 34 38 36

 Obligations incurred, unexpired accounts 3030 112 113 113

 Outlays (gross) 3040 -106 -115 -112

 Recoveries of prior year unpaid obligations, unexpired 3080 -2 0 0
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 58

BUDGET SCHEDULES

Account Symbol and Title

14X1116

Oregon and California Grant Lands Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 38 36 37

 Obligated balance, end of year (net) 3100 38 36 37

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 112 112 112

 Outlays, gross:

 Outlays from new discretionary authority 4010 99 83 83

 Outlays from discretionary balances 4011 7 32 29

 Outlays, gross (total) 4020 106 115 112

 Budget authority, net (discretionary) 4070 112 112 112

 Outlays, net (discretionary) 4080 106 115 112

Budget authority, net (total) 4180 112 112 112

Outlays, net (total) 4190 106 115 112

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 49 51 51

 Other than full-time permanent 1113 5 5 5

 Other personnel compensation 1115 1 2 2

 Total personnel compensation 1119 55 58 58

 Civilian personnel benefits 1121 17 17 17

 Travel and transportation of persons 1210 2 1 1

 Transportation of things 1220 2 1 1

 Communications, utilities, and miscellaneous charges 1233 2 3 3

 Advisory and assistance services 1251 1 1 1

 Other services from non-Federal sources 1252 13 12 12

 Other goods and services from Federal sources 1253 4 3 3

 Operation and maintenance of facilities 1254 0 2 2

 Operation and maintenance of equipment 1257 5 2 2

 Supplies and materials 1260 3 3 3
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 59

BUDGET SCHEDULES

Account Symbol and Title

14X1116

Oregon and California Grant Lands Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

 Equipment 1310 3 5 5

 Grants, subsidies, and contributions 1410 5 5 5

 Total new obligations 9999 112 113 113

Character Classification (C) ($ in Millions)

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority

2004-

01 112 112 112

 Outlays

2004-

02 106 115 112

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 823 832 826

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources 1000 112,043
Bureau of Land Management 2013 Budget Justifications

Chapter XI – Oregon and California Grant Lands Page XI - 60

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Bureau of Land Management 2013 Budget Justifications

Chapter XII – Range Improvements Page XII - 1

RANGE IMPROVEMENTS

APPROPRIATIONS LANGUAGE

For rehabilitation, protection, and acquisition of lands and interests therein, and improvement of 

Federal rangelands pursuant to section 401 of the Federal Land Policy and Management Act of 

1976 (43 U. S. C. 1701), notwithstanding any other Act, sums equal to 50 percent of all moneys 

received during the prior fiscal year under sections 3 and 15 of the Taylor Grazing Act (43 U. S. 

C. 315 et seq. ) and the amount designated for range improvements from grazing fees and 

mineral leasing receipts from Bankhead-Jones lands transferred to the Department of the 

Interior pursuant to law, but not less than $10,000,000, to remain available until expended:

Provided, That not to exceed $600,000 shall be available for administrative expenses. 

(Department of the Interior, Environment, and Related Agencies Appropriations Act, 2012.)

APPROPRIATIONS LANGUAGE CITATIONS AND AUTHORIZATIONS

Section 401 of FLPMA (43 U.S.C. 1751), as amended by the Public Rangelands 

Improvement Act of 1978 (43 U.S.C. 1901-1905), provides that 50 percent of all moneys 

received by the U.S. as fees for grazing domestic livestock on public land under the Taylor 

Grazing Act (43 U.S.C. 315) and the Act of August 28, 1937 (43 U.S.C. 1181d) shall be credited 

to a separate account in the Treasury and made available for the purpose of on-the-ground 

range rehabilitation, protection, and improvements, including, but not limited to, seeding and 

reseeding, fence construction, weed control, water development, and fish and wildlife habitat 

enhancement.

Taylor Grazing Act of 1934 (43 U.S.C 315) as, amended by the Act of August 28, 1937 (43 

U.S.C. 1181d), authorizes the establishment of grazing districts, regulation, and administration 

of grazing on the public lands, and improvement of the public rangelands. It also authorizes the 

Secretary to accept contributions for the administration, protection, and improvement of grazing 

lands, and establishment of a trust fund to be used for these purposes.

7 U.S.C. 1010 (the Bankhead Jones Farm Tenant Act of 1937), provides that the Secretary of 

Agriculture is authorized and directed to develop a program of land conservation and utilization 

in order to correct maladjustments in land use, and thus assist in controlling soil erosion, 

conducting reforestation, preserving natural resources, protecting fish and wildlife, developing 

and protecting recreational facilities, mitigating floods, preventing impairment of dams and 

reservoirs, conserving surface and subsurface moisture, protecting the watersheds of navigable 

streams, and protecting the public land, health, safety, and welfare; but not to build industrial 

parks or establish private industrial or commercial enterprises.

Executive Orders 10046, et al., provide that land under the jurisdiction of the Secretary of 

Agriculture under the provision of §32 of the Bankhead Jones Farm Tenant Act is transferred 

from the Department of Agriculture to the Department of the Interior for use, administration, or 

exchange under the applicable provisions of the Taylor Grazing Act.
Bureau of Land Management 2013 Budget Justifications

Chapter XII – Range Improvements Page XII - 2

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.
Bureau of Land Management 2013 Budget Justifications

Chapter XII – Range Improvements Page XII - 3

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

2011 Enacted 2012 Enacted

Fixed 

Costs

Internal 

Transfers

Program Changes 

(+/-)

2013 President's 

Budget

Change From 2012 

Enacted

Total 

FTE Amount

Total 

FTE Amount FTE Amount FTE Amount FTE Amount

Range Improvements

Public Lands Improvement 36 7,873 36 7,873 0 0 0 0 36 7,873 0 0

Farm Tenant Act Lands Improvement 11 1,527 11 1,527 0 0 0 0 11 1,527 0 0

Administrative Expenses 0 600 0 600 0 0 0 0 0 600 0 0

Total, Range Improvements 47 10,000 47 10,000 0 0 0 0 47 10,000 0 0
Bureau of Land Management 2013 Budget Justifications

Chapter XII – Range Improvements Page XII - 4

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Bureau of Land Management 2013 Budget Justifications

Chapter XII – Range Improvements Page XII - 5

Appropriation: Range Improvements

2013 Change

2011 Fixed Costs & Program from

Actual 2012

Related 

Changes Changes Budget

2012 

Enacted

Subactivity Plan Enacted (+/ -) (+/ -) Request (+/-)

Public Lands 

Improvement $ 7,873 7,873 0 0 7,873 0

FTE 36 36 0 0 36 0

Farm Tenant 

Act Lands 

Improvement $ 1,527 1,527 0 0 1,527 0

FTE 11 11 0 0 11 0

Administrative 

Expenses $ 600 600 0 0 600 0

FTE 0 0 0 0 0 0

Total Activity $ 10,000 10,000 0 0 10,000 0

FTE 47 47 0 0 47 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Range Improvement Activity is $10,000,000 and 47 FTE. 

PROGRAM OVERVIEW

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 and/or carbon 

sequestration). Areas identified through land health evaluations, which are currently not 

achieving one or more of the rangeland health standards due to livestock grazing, are prioritized 

at the district level for funding. Examples of areas not achieving standards could be riparian 

areas functioning at-risk with a downward trend, areas with unacceptable plant community 

composition including areas invaded by noxious weeds, or areas with unnaturally high amounts 

of exposed soil that would be subject to accelerated erosion. 

These funds also provide field offices flexibility to address changing resource conditions such as 

drought, fire, newly listed species, or critical habitat, and/or candidate species such as sagegrouse.
Bureau of Land Management 2013 Budget Justifications

Chapter XII – Range Improvements Page XII - 6

Solar-powered wells are used to improve livestock distribution in areas unable to sustain land health standards as a

result of livestock grazing.

Means and Strategies

• The BLM uses funding from the Range Improvement account in addition to funding from 

other programs to support rangeland health, and contributions from permittees and partner 

organizations. The amount of funding BLM is able to leverage from partners and 

stakeholders is a factor used to help prioritize projects for funding. 

• Other workload priorities such as wildfire, droughts, floods, or litigation can affect the BLM’s 

ability to complete range improvement projects.

• Prioritizing projects is also based on resource issues, such as, the need to protect sensitive 

species through management of sage-grouse habitat, reducing the risk of catastrophic 

wildfire through the management of fuel loads, or coordinating with post-fire rehabilitation 

efforts to help manage the spread of invasive or noxious weeds. 

Funding for the Range Improvement Appropriations

Fifty percent of the grazing fees collected on public lands, or $10 million, whichever is greater, is 

appropriated annually into the Range Improvement Account. Funding is distributed to the 

grazing Districts within BLM, according to where the receipts were collected. This funding 

remains available until spent 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 2013 Budget Justifications

Chapter XII – Range Improvements Page XII - 7

Grazing Fees

Grazing fees are set each year under the authority of the Federal Land Policy & Management 

Act (FLPMA) and the Public Range Improvement Act (PRIA). The fee for 2012 will remain $1.35 

per Animal Unit Month (AUM), as announced on February 1, 2012. 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 administrative fee. More information on the Rangeland Management program 

and the proposed cost recovery measure can be found the MLR appropriation section.

2013 PROGRAM PERFORMANCE

In 2013, the focus and priorities of the Range Improvement Program 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, 200 existing projects would be reconstructed/maintained and 50,000 acres of weed treatment would be completed. 

Aerial application of Tebuthirion, vegetation treatment herbicide, is used to spray mesquite 

(problematic invasive species) for restoration of desert grassland in New Mexico.
Bureau of Land Management 2012 Budget Justifications

Chapter XII – Range Improvements Page XII - 8

RANGELAND IMPROVEMENTS PERFORMANCE OVERVIEW

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 2012 to 

2013

Long-term 

Target

2016

Mission Area 1: Provide natural and cultural resource protection and experiences

Goal 1: Protect America’s landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, wildlife refuges, 

and BLM lands. 

Number of 

DOI acres 

restored to the 

condition 

specified in 

management 

plans. (SP)

1,000,156 950,157 1,136,759 950,000 848,477 485,119 511,000 +25,881 700,000 

Comment: In 2012, BLM will increase its permit renewal activities, which will result in a decrease in the number of acres restored. In 2013, $2.5 million will be used for Habitat 

Restoration and Improvement. The increased funding received will restore and improve key greater sage-grouse habitat for the benefit of sage grouse populations.

Contributing Programs: Land Resources; Wildlife Management; O&C Resources Management; Range Improvements; Forest Ecosystems; SNPLMA Conservation; Resource 

Management Planning; Forestry Pipeline Restoration; NM&NCA's; Other Reimbursables. 
Bureau of Land Management 2012 Budget Justifications

Chapter XII – Range Improvements Page XII - 9

BUDGET SCHEDULES

Account Symbol and Title

14X5132

Range Improvements Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Improvements to public lands 0001 12 8 7

 Farm Tenant Act lands 0002 0 3 3

Total new obligations 0900 12 11 10

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 3 1 0

 Budget authority:

 Appropriations, mandatory:

 Appropriation (General Fund) 1200 3 2 2

 Appropriation (special or trust fund) 1201 7 8 8

 Appropriations, mandatory (total) 1260 10 10 10

 Policy Outlays:

 Baseline Outlays:

 Policy Outlays:

 Baseline Outlays:

Total budgetary resources available 1930 13 11 10

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 1 0 0

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 

(gross) 3000 5 7 10

 Obligations incurred, unexpired accounts 3030 12 11 10

 Outlays (gross) 3040 -10 -8 -8

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 7 10 12
Bureau of Land Management 2012 Budget Justifications

Chapter XII – Range Improvements Page XII - 10

BUDGET SCHEDULES

Account Symbol and Title

14X5132

Range Improvements Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

 Obligated balance, end of year (net) 3100 7 10 12

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 10 10 10

 Outlays, gross:

 Outlays from mandatory balances 4101 10 8 8

 Budget authority, net (mandatory) 4160 10 10 10

 Outlays, net (mandatory) 4170 10 8 8

Budget authority, net (total) 4180 10 10 10

Outlays, net (total) 4190 10 8 8

Object Classification (O) ($ in Millions)

Direct obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 1111 2 2 2

 Civilian personnel benefits 1121 1 1 1

 Other services from non-Federal sources 1252 3 0 0

 Other goods and services from Federal 

sources 1253 1 2 2

 Supplies and materials 1260 1 2 2

 Land and structures 1320 3 3 2

 Grants, subsidies, and contributions 1410 1 1 1

 Total new obligations 9999 12 11 10

Character Classification (C) ($ in Millions)

INVESTMENT ACTIVITIES:

 Physical assets:

 Major equipment:

 Other physical assets:

 Direct Federal programs:

 Budget Authority

1352-

01 10 10 10

 Outlays 1352- 10 8 8
Bureau of Land Management 2012 Budget Justifications

Chapter XII – Range Improvements Page XII - 11

BUDGET SCHEDULES

Account Symbol and Title

14X5132

Range Improvements Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

02

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 47 47 47

Appropriations Requests in Thousands of 

Dollars (T)

Budget year budgetary resources 1000 0 10000
Bureau of Land Management 2012 Budget Justifications

Chapter XII – Range Improvements Page XII - 12

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Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 1

SERVICE CHARGES,

DEPOSITS AND FORFEITURES

APPROPRIATIONS LANGUAGE

For administrative expenses and other costs related to processing application documents and 

other authorizations for use and disposal of public lands and resources, for costs of providing 

copies of official public land documents, for monitoring construction, operation, and termination 

of facilities in conjunction with use authorizations, and for rehabilitation of damaged property, 

such amounts as may be collected under Public Law 94–579, as amended, and Public Law 93–

153, to remain available until expended: Provided, That, notwithstanding any provision to the 

contrary of section 305(a) of Public Law 94–579 (43 U. S. C. 1735(a)), any moneys that have 

been or will be received pursuant to that section, whether as a result of forfeiture, compromise, 

or settlement, if not appropriate for refund pursuant to section 305(c) of that Act (43 U. S. C. 

1735(c)), shall be available and may be expended under the authority of this Act by the 

Secretary to improve, protect, or rehabilitate any public lands administered through the Bureau 

of Land Management which have been damaged by the action of a resource developer, 

purchaser, permittee, or any unauthorized person, without regard to whether all moneys 

collected from each such action are used on the exact lands damaged which led to the action:

Provided further, That any such moneys that are in excess of amounts needed to repair damage 

to the exact land for which funds were collected may be used to repair other damaged public 

lands. (Department of the Interior, Environment, and Related Agencies Appropriations Act, 

2012.)

APPROPRIATION LANGUAGE CITATIONS AND AUTHORIZATIONS

Federal Land Policy and 

Management Act of 1976, as 

amended (43 U.S.C. 1735)

Authorizes the BLM to receive deposits and forfeitures.

The Mineral Leasing Act of 

1920, as amended by the 

Trans-Alaska Pipeline Act of 

1973, §101 (Public Law 93-

153) (30 U.S.C. 185)

Authorizes rights-of-way for oil, gas, and other fuels. It further 

authorizes the Secretary to issue Rights-Of-Way and other land 

use authorizations related to the Trans-Alaska Pipeline. Rightsof-way applicants and permittees are to reimburse the U.S. for all 

costs associated with processing applications and monitoring 

pipeline construction and operations.

The Alaska Natural Gas 

Transportation Act of 1976 

(15 U.S.C. 719)

Authorizes the granting of certificates, rights-of-way permits, and 

leases.

The National Environmental 

Policy Act of 1969 (42 U.S.C. 

4321, 4331-4335, 4341-4347)

Requires the preparation of environmental impact statements for 

Federal projects that may have a significant effect on the 

environment.
Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 2

The Wild Free Roaming 

Horse and Burro Act of 

1971, as amended by the 

Public Rangelands 

Improvement Act of 1978 (16 

U.S.C. 1331-1340)

Authorizes adoption of wild horses and burros by private 

individuals under cooperative agreements with the Government.

The Public Rangelands 

Improvement Act of 1978 (43 

U.S.C. 1901-1908)

Establishes the policy of improving Federal rangeland conditions 

and facilitates the humane adoption or disposal of excess wild 

free-roaming horses and burros.

Omnibus Public Land 

Management Act, 2009 (P.L. 

111-11)

Among numerous other things, authorizes the disposal of certain 

lands in the Boise District of the Bureau of Land Management, in 

Washington County, Utah, and in Carson City, Nevada. It 

authorizes BLM to retain and spend most of the proceeds of 

these sales to acquire lands in wilderness and other areas and 

for other purposes, and to pay a portion to the states in which the 

sold land was located. 
Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 3

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

Comparison

by Activity/

Subactivity

2011

Actual

2012

Enacted

2013

Change from 

2012

Enacted

(+/ -)

Program 

Changes

(+/ -)

Budget 

Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Service 

Charges, 

Deposits, & 

Forfeitures

208 30,813 208 31,063 0 -10 208 31,053 -10

Offsets -30,813 -31,063 +10 -31,053 +10

Right-Of-Way 

Processing

[5101, 5102 & 

5103]

119 16,348 119 16,400 0 +0 119 16,400 +0

Energy and 

Minerals Cost 

Recovery

[5110 & 5104]

30 3,978 30 2,900 0 +0 30 2,900 +0

Trans Alaska 

Pipeline [5106 

& 5109]

26 3,832 26 4,000 0 +0 26 4,000 +0

Adopt-A-Horse 

Program

[5200 thru 

5220]

0 402 0 450 0 +0 0 450 +0

Repair of 

Damaged 

Lands

[5330, 5310, & 

5320]

18 3,449 18 2,633 0 +0 18 2,633 +0

Cost 

Recoverable 

Realty Cases

[5410 thru 

5440]

4 733 4 900 0 +0 4 900 +0

Timber 

Contract 

Expenses

[5500 & 5600]

1 16 1 30 0 -10 1 20 -10

Commercial 

Film & 

Photography 

Fees [5441]

1 215 1 165 0 +0 1 165 +0

Recreation 

Cost Recovery 

[5105]

4 809 4 1,500 0 +0 4 1,500 +0

Copy Fee 

Account [5700]

5 1,031 5 2,085 0 +0 5 2,085 +0
Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 4

PROGRAM OVERVIEW

Rights-Of-Way Processing and Energy and Minerals Cost Recovery – The BLM recovers 

certain costs of processing documents related to rights-of-way, 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 – Rights-Of-Way (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.

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 

2011, BLM’s average cost to process a major category right-of-way application was slightly over 

$16,000. Major category ROW projects are usually for oil and gas pipelines, electric 

transmission lines, wind and solar energy development sites, or other projects associated with 

energy development. Twenty percent of BLM’s rights-of-way 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.

At least 80 percent of the ROW projects are minor category which usually consists of short 

roads, well gathering pipelines, and electric distribution lines. Minor category ROW applications 

cost an average of $1,200 each to process in 2011. For these smaller-scale projects, the BLM 

recovers 50 percent of the actual costs of each right-of-way application.

Only those costs directly associated with processing an application or issuing a ROW grant are 

charged to an individual project. Costs of land use planning or studies to determine placement 

of ROW corridors, and other general costs that are not specific to a ROW application, cannot be 

charged to the individual ROW cost recovery account. These costs are funded entirely from the 

MLR appropriation. In addition, certain types of ROW applicants are exempted, by law, from 

cost recovery. These applicants include states and local governments. 

The BLM currently administers more than 170,000 ROW authorizations. The Bureau will 

continue to expedite the granting of ROWs by processing applications, issuing grants, and 

monitoring construction involved with the operation and termination of ROWs on the public land 

as authorized by the FLPMA and the MLA.

Energy and Minerals Cost-Recovery - The BLM issued a final rule effective November 7, 

2005 to amend its mineral resources regulations to increase certain fees and to impose new 

Appropriation: Service Charges, Deposits, and 

Forfeitures (Indefinite)
Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 5

fees to cover BLM’s costs of processing documents relating to its minerals programs. The new 

fees include costs of actions such as environmental studies performed by BLM, lease 

applications, name changes, corporate mergers, lease consolidations and reinstatements, and 

other processing-related costs. BLM charges the fees pursuant to authorities under the 

Independent Offices Appropriation Act, as amended, 31 U.S.C. 9701 (IOAA); Section 304(a) of 

FLPMA; and OMB Circular A-25; DOI Manual 346 DM 1.2 A; and case law (also see the 

preamble to the proposed rule at 70 FR 41533 and Solicitor's Opinion M-36987 (December 5, 

1996)).

The Administration will re-propose legislation to repeal, beginning in 2014, the provisions in 

Section 365 of the Energy Policy Act of 2005 that divert leasing rental receipts from the 

Treasury to the BLM oil and gas program and prohibit BLM from implementing cost recovery 

fees for processing applications for permits to drill. Following adoption of the legislative 

proposal, the Administration will promulgate a new energy cost recovery rulemaking to impose 

Application for Permit to Drill (APD) processing fees. The cost recovery fee will replace the 

legislative permit fee that is currently set through annual appropriations language. The 

rulemaking will provide for cost recovery fees to replace the mandatory funding from lease 

rental receipts which would be repealed beginning in 2014. The proposed increased reliance on 

cost recoveries is consistent with the findings of previous Inspector General reports and the 

2005 Program Assessment Rating Tool (PART) review of this program, which found that the 

program does not adequately charge identifiable users for costs incurred on their behalf. The 

funds collected from this cost recovery regulation will be deposited in the Service Charges, 

Deposits and Forfeitures account.

The energy and mineral cost recovery revenues will be expended by the BLM for labor and 

other costs to process these leases and permits. In addition, the BLM is analyzing options for 

implementing inspection fees in the Coal and Other Minerals Management programs. The BLM 

expects to begin drafting regulations that will shift a greater share of program costs, such as 

inspection and enforcement activities, to the entities that benefit from the service, thereby 

reducing the impact on taxpayers for funding these activities.

Recreation Cost Recovery – BLM recovers its costs associated with authorizing and 

administering certain recreation activities or events. 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 Bureau of Land Management (BLM) conducts adoptions of wild 

horses and burros gathered from its public lands multiple times throughout the year. In FY 

2013, the BLM anticipates making at least 4,200 animals available for adoption to qualified 

applicants. The BLM administers animal adoptions primarily through a competitive bidding 

process, receiving a minimum of $125 per horse or burro to offset veterinary, transportation, and 

animal maintenance costs.

Repair of Damaged Lands – Under the FLPMA, the BLM is authorized to collect for land 

damaged by users who have not fulfilled the requirements of contracts or bonds. If a funding 

excess exists after repair has been made to the exact land for which funds were collected or 
Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 6

forfeited, then 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. 

Applicants may deposit money in an approved account for the BLM’s use in completing specific 

realty work. These dollars become immediately available to the BLM without further 

appropriation.

Timber Contract Expenses – Many BLM timber contracts have provisions that allow the 

purchaser to make cash payments to the BLM in lieu of performing specified work directly. The 

BLM uses these funds as required by the contract. This involves performing timber slash 

disposal and reforestation.

Commercial Film and Photography – A permit is required for all commercial filming activities 

on public lands. Commercial filming is defined as the use of motion picture, videotaping, sound 

recording, or other moving image or audio recording equipment on public lands that involves the 

advertisement of a product or service, the creation of a product for sale, or the use of actors, 

models, sets, or props, but not including activities associated with broadcasts for 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 rights-of-way (ROW), serial register pages, and master title plats). This fee covers the cost 

of research, staff time, and the supplies required for printing.
Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 7

BUDGET SCHEDULES

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Right-of-Way Processing 0001 17 18 18

 Energy and Minerals Cost Recovery 0004 2 3 3

 Repair of Damaged Lands 0006 2 3 3

 Cost recoverable realty 0007 1 1 1

 Recreation Cost Recovery 0008 1 1 1

 Copy Fees 0009 1 1 1

 Trans Alaska Pipeline Authority 0010 5 5 5

Total new obligations 0900 29 32 32

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 45 47 46

 Budget authority:

 Appropriations, discretionary:

 Appropriation (special or trust fund) 1101 31 31 31

 Appropriation, discretionary (total) 1160 31 31 31

 Discretionary, Appropriations Committee

 Policy Outlays:

 Baseline Outlays:

Total budgetary resources available 1930 76 78 77

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 47 46 45

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 

(gross) 3000 6 6 8

 Obligations incurred, unexpired accounts 3030 29 32 32

 Outlays (gross) 3040 -29 -30 -34
Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 8

BUDGET SCHEDULES

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 6 8 6

 Obligated balance, end of year (net) 3100 6 8 6

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 31 31 31

 Outlays, gross:

 Outlays from new discretionary authority 4010 0 16 16

 Outlays from discretionary balances 4011 29 14 18

 Outlays, gross (total) 4020 29 30 34

 Offsets against gross budget authority and 

outlays:

 Offsetting collections (collected) from:

 Budget authority, net (discretionary) 4070 31 31 31

 Outlays, net (discretionary) 4080 29 30 34

Budget authority, net (total) 4180 31 31 31

Outlays, net (total) 4190 29 30 34

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 14 14 14

 Other than full-time permanent 1113 1 1 1

 Other personnel compensation 1115 1 1 1

 Total personnel compensation 1119 16 16 16

 Civilian personnel benefits 1121 4 4 4

 Travel and transportation of persons 1210 1 1 1

 Advisory and assistance services 1251 1 2 2

 Other services from non-Federal sources 1252 2 4 4

 Other goods and services from Federal sources 1253 4 4 4
Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 9

BUDGET SCHEDULES

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

 Grants, subsidies, and contributions 1410 1 1 1

 Total new obligations 9999 29 32 32

Character Classification (C) ($ in Millions)

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority 2004-01 31 31 31

 Outlays 2004-02 29 30 34

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 208 208 208

Appropriations Requests in Thousands of Dollars 

(T)

Budget year budgetary resources 1000 31,053
Bureau of Land Management 2013 Budget Justifications

Chapter XIII – Service Charges, Deposits, and Forfeitures Page XIII - 10

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Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 1

MISCELLANEOUS

PERMANENT PAYMENTS

APPROPRIATIONS LANGUAGE

No Appropriations Language

EXPLANATION

The Permanent Payment Accounts provide for sharing specified receipts collected from the 

sale, lease, or use of the public lands and resources with States and counties. They do not 

require annual appropriations action. Amounts are estimated based on anticipated collections, 

or in some cases, upon provisions required by permanent legislation. The Bureau of Land 

Management (BLM) distributes these funds in accordance with the provisions of the various 

laws that specify the percentages to be paid to the applicable recipient jurisdictions and, in 

some cases, how the States and counties must use these funds. These payments are made 

subject to the authorities of permanent law, and the amounts are made available by operation of 

permanent laws. The payment amounts show for each year are the amounts paid, or estimated 

to be paid, in that year.
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 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 5 percent of the net proceeds (4 percent of 

gross proceeds) from the sale of public land and public land 

products.

Taylor Grazing Act of 

1934 (43 U.S.C. 315 b, i 

and m)

States are paid 121⁄2 percent of the grazing fee receipts from 

lands within organized grazing district boundaries; States are 

paid 50 percent of the grazing fee receipts from public land 

outside of organized grazing districts; and States are paid 

specifically determined amounts from grazing fee and mineral 

receipts from miscellaneous lands within grazing districts that 

are administered under certain cooperative agreements which 

stipulate that the fees be retained by the BLM for distribution.

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 the activities of BLM on Coos Bay Wagon Road 

grant lands. 

7 U.S.C. 1012, the 

Bankhead Jones Farm 

Tenant Act of 1937, and 

Executive Orders 

107878 and 10890

25 percent of the revenues received from the use of these 

land use project lands, including grazing and mineral leasing, 

are paid to the counties in which such lands are located. The 

Act transfers the management of certain Farm Tenant ActLand Utilization Project lands to the jurisdiction of the 

Department of the Interior.

The Burton-Santini Act 

of 1980 (P.L. 96-586) 

and P.L. 105-263

Authorizes and directs the sale of up to 700 acres per year of 

certain lands in Clark County, Nevada, and the acquisition of 

environmentally sensitive lands in the Lake Tahoe Basin, with 

85 percent of the proceeds. The remaining 15 percent of 

proceeds from sales are distributed to Nevada and Clark 

county.
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 3

Southern Nevada Public 

Land Management Act, 

P.L. 105-263, as 

amended by P.L. 107-

282.

Authorizes the disposal through sale of 27,000 acres in Clark 

County, Nevada, the proceeds of which are distributed as 

follows: (a) 5 percent for use in the general education 

program of the State of Nevada; (b) 10 percent for use by 

Southern Nevada Water Authority for water treatment and 

transmission facility infrastructure in Clark County, Nevada; 

and (c) the remaining 85 percent to be used to acquire 

environmentally sensitive lands in Nevada; to make capital 

improvements to areas administered by NPS, FWS and BLM 

in Clark County, Nevada; to develop a multi-species habitat 

plan in Clark County, Nevada; to develop parks, trails, and 

natural areas in Clark County, Nevada; and to provide 

reimbursements for BLM costs incurred in arranging sales 

and exchanges under this Act.

The Alaska Native 

Claims Settlement Act 

of 1971 as amended by 

Public Law 94-204 of 

1976 (43 U.S.C. 1611)

Directs the Secretary to make conveyances to Cook Inlet

Region, Inc. (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.
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 4

The Secure Rural 

Schools and 

Community SelfDetermination Act of 

2000 (P.L. 106-393) as 

amended by P.L. 110-

343, October, 2008.

Authorizes stabilized payments to 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. 

As amended by Public Law 110-343, in October, 2008,

payments are authorized to be made in 2009 through 2012 

(for 2008 through 2011). See the discussion later in this 

chapter for more information. 

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. 

Clark County 

Conservation of Public 

Land and Natural 

Resources Act of 2002 

(P.L. 107-282) as 

amended by P.L. 108-

447

Enlarges the area in which the BLM can sell lands under the 

Southern Nevada Public Land Management Act; approves a 

land exchange in the Red Rock Canyon Area; designates 

wilderness; designates certain BLM lands for a new airport for 

Las Vegas; and gives land to the State and City for certain 

purposes. 

Lincoln County 

Conservation, 

Recreation and 

Development Act (PL 

108-424)

Addresses a wide-range of public lands issues in Lincoln 

County, Nevada, designates as wilderness 768,294 acres of 

BLM-managed lands and releases from wilderness study area 

(WSA) status 251,965 acres of public land. The bill also 

directs the BLM to dispose of up to 90,000 acres of public 

land and divides the proceeds 85 percent to a federal fund 

and 15 percent to state and county entities, establishes utility 

corridors, transfers public lands for state and county parks, 

creates a 260-mile OHV trail and resolves other public lands 

issues.
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 5

Public Law 109-432, 

White Pine County Land 

Sales

Authorizes the disposal through sale of 45,000 acres in White 

Pine County, Nevada, the proceeds of which are distributed 

as follows: (a) 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 5 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 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 6

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

Comparison

by Activity/

Subactivity

2011

Actual

2012

Enacted

2013 Change

Program Changes

(+/ -)

Budget

Request

from 2012

(+/-)

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Miscellaneous 

Permanent Payments 

Appropriation Total

15 89,195 15 51,887 -15 -30,364 0 21,511 -15 -30,376

Payments to States from 

Proceeds of Sales [5133] 702 606 +239 845 +239

Payments to States from 

Grazing Fees, etc. on 

Public Lands outside 

Grazing Districts [5016]

908 925 +0 925 +0

Payments to States from 

Grazing Fees, etc. on 

Public Lands within 

Grazing Districts [5032]

1,273 1,288 +25 1,313 +25

Payments to States from 

Grazing Fees, etc. on 

Public Lands within 

Grazing Districts, Misc. 

[5044]

50 64 +0 64 +0

Payments to Counties, 

National Grass Lands 

(Farm Tenant Lands) 

[5896]

607 706 +0 706 +0

Payments to Nevada 

from Receipts on Land 

Sales (includes 15%) 

[5129]

169 8,249 +9,409 17,658 +9,409

State Share, Carson City 

Land Sales [5561] 0 12 -12 0 -12

Secure Rural Schools 15 85,486 15 40,037 -15 -40,037 0 0 -15 -40,037

Payments to O&C 

Counties, Title I/III 77,393 35,992 -35,992 0 -35,992

Payments to Coos 

Bay Wagon Road 

Counties, Title I/III

 

636 318 -318 0 -318

Payments to O&C 

and Coos Bay 

Wagon Road 

Counties, Title II

15 7,457 15 3,727 0 -3,727 15 0 0 -3,727
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 7

Appropriation: Miscellaneous Permanent Payments

PROGRAM OVERVIEW

The following activities include payments made to States and counties from the sale, lease, or 

use of other public lands or resources under the provisions of permanent legislation and do not 

require annual appropriations. The payment amounts for 2012 and 2013 are estimated based 

on several factors, including the provisions of various laws that specify the percentage of 

receipts to be paid to designated States, counties, or other recipients, and the amounts of 

collections or receipts as authorized by applicable legislation.

Payments to States from Proceeds of Sales - The Bureau of Land Management (BLM)

collects funds from the sale of public lands and materials in the limits of public domain lands 

pursuant to 31 U.S.C. 1305. States are paid five percent of the net proceeds of these sales. 

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 2011 were 

$702,000. The estimated payments for 2012 and 2013 are $606,000 and $845,000, 

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. BLM makes these payments 

annually. The actual and estimated payments for 2011, 2012, and 2013 are $908,000, 

$925,000, and $925,000 respectively. 

Payments to States from Grazing Receipts, etc., on Public Lands within Grazing Districts 

–The States are paid 121⁄2 percent of grazing receipts from public lands inside grazing districts 

(43 U.S.C. 315b, 315i). These funds are to be expended by the State for the benefit of the 

counties in which the lands are located. BLM makes the payments annually. Actual and 

estimated payments for 2011, 2012, and 2013 are $1,273,000, $1,288,000, and $1,313,000

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. BLM makes these payments annually. Actual and estimated payments for 2011, 

2012, and 2013 are $50,000, $64,000, and $64,000 respectively.

Payments to Counties, National Grasslands (Farm Tenant Act Lands) – Of the revenues 

received from the use of Bankhead-Jones Act lands administered by the BLM, 25 percent is 

paid to the counties in which such lands are situated for schools and roads (7 U.S.C. 1012). 

BLM makes payments annually on a calendar-year basis. Actual and estimated payments for 

2011, 2012, and 2013 are $607,000, $706,000 and $706,000 respectively. 
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 8

Payments to Nevada from Receipts on Land Sales – Payments to the State of Nevada are 

authorized by two Acts. The Burton-Santini Act authorizes and directs the Secretary to sell not 

more than 700 acres of public lands per calendar year in and around Las Vegas, Nevada, the 

proceeds of which are to be used to acquire environmentally sensitive land in the Lake Tahoe 

Basin of California and Nevada. Annual revenues are distributed to the State of Nevada (five 

percent) and the county in which the land is located (ten percent). 

The Southern Nevada Public Land Management Act, as amended, authorizes the disposal 

through sale of approximately 50,000 acres in Clark County, Nevada, the proceeds of which are 

to be distributed as follows: (a) 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 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.)

BLM paid the State of Nevada and Southern Nevada Water Authority a total of $169,000 in 

2011. Estimated payments for 2012 and 2013 are $8,249,000 and $17,658,000 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

$6,833,000 in 2011 from land sales and estimates collections from land sales in 2012 and 2013

will be $54,720,000 and $116,900,000 respectively. The increase in revenue is due to a large 

number of acres predicted to sell in 2012 and 2013. Some receipts for sales held in the latter 

half one fiscal year are not collected in full until the next fiscal year because of normal delay in 

the acceptance of bids. 

Payments to Oregon and California Grant Lands Counties – Under the Oregon and 

California Act of 1937, BLM paid 50 percent of receipts from federal activities on O&C lands 

(mainly from timber sales) to 18 counties in western Oregon. These revenues decreased since 

the 1980s due to changes in federal timber policies. 

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393) was 

enacted on October 30, 2000. The Act was designed to provide a predictable payment to 

States and counties, in lieu of funds derived from federal timber harvests. Payments were 

based on historical payments, adjusted for inflation. 

Payments to the 18 O&C counties were derived from: 

1. Revenues from federal activities on O&C lands in the previous fiscal year that are not 

deposited to permanent operating funds such as the Timber Sale Pipeline Restoration or 

the Forest Ecosystem Health and Recovery, and, 

2. To the extent of any shortfall, out of any funds in the Treasury not otherwise appropriated. 

Under P.L. 106-393, and in the extensions of it, payments were made for a fiscal year in the 

following fiscal year. For example, payments for 2001 were made in 2002. Payments were 

made for 2001 through 2006 in 2002 through 2007. 

Payments have been extended twice. 

P.L. 110-28 provided payments was for one year. The payment for 2007 was made in 2008. 

Payments in 2008 were distributed among the countries in the same way as payments in 2007. 
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 9

Payments were limited to a total of $525,000,000 for both the BLM and the Forest Service, 

$100,000,000 from receipts and $425,000,000 from the General Fund. 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 are described in the law as “transition” payments, 

and are a declining percentage of the payments made in 2006; the payment in 2009 (for 2008)

is 90 percent of the amount paid in 2006, the payment in 2010 (for 2009) is 81 percent, and the 

payment in 2011 (for 2010) is 73 percent. The payments made to counties in 2012 (for 2011) 

used formula based on several factors that included acreage of Federal land, previous 

payments, and per capita personal income. The table below shows payments made from 2002 

(for 2001) through the payments for 2011 (in 2012). The payments to the Coos and Douglas 

counties have followed the same pattern as payments to O&C counties under the Secure Rural 

Schools Act and extensions. 

The Budget reflects a five-year reauthorization, starting in FY2012, of the Secure Rural Schools 

Act with funding through mandatory U.S. Forest Service appropriations. This SRS proposal 

revises the allocation split between the three portions of the program from the current authority 

emphasizing enhancement of forest ecosystems, restoration and improvement of land health 

and water quality and the increase of economic activity. The FY 2013 payment is proposed for 

$294 million. For more information on this proposal, see the U.S. Forest Service Budget 

Justification.

For any of the 18 counties in Western Oregon choosing not to receive payments for 2012 (in 

2013) 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 2012 (in 2013)

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. 

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
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 10

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

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
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 11

Payments for 2007 in 2008* O&C CBWR Total

Amount from Receipts: $6,354 $297 $6,652

Amount from General Fund: $109,500 $713 $110,213

Total $115,854 $1,010 $116,865

Title I/III $110,873 $995 $111,868

Title II $4,982 $15 $4,997

Total $115,854 $1,010 $116,865

* PL. 110-28 extended Secure Rural Schools payments for one year. 

Payments for 2008 in 2009 O&C CBWR Total

Amount from Receipts: $12,999 $312 $13,311

Amount from General Fund: $91,484 $599 $92,083

Total $104,483 $911 $105,394

Title I/III $95,870 $838 $96,708

Title II $8,614 $73 $8,686

Total $104,483 $911 $105,394

Payments for 2009 in 2010 O&C CBWR Total

Amount from Receipts: $14,423 $248 $27,733

Amount from General Fund: $79,812 $573 $67,122

Total $94,035 $820 $94,855

Title I/III $86,420 $755 $87,175

Title II $7,615 $65 $7,680

Total $94,035 $820 $94,855

Payments for 2010 in 2011 O&C CBWR Total

Amount from Receipts: $9, 670 $636 $10,306

Amount from General Fund: $75,077 $102 $75,180

Total $84,748 $739 $85,487

Title I/III $77,393 $636 $78,029

Title II $7,354 $102 $7,457

Total $84,748 $739 $85,487

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

Note: Amounts may not add due to rounding
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 12

2011 Total Payments of BLM Receipts to States and Counties

(in Dollars)

TAYLOR GRAZING ACT

a/

MINERAL 

LEASING 

ACT ROW 

payments

SEC. 15 

Outside 

Grazing 

Districts 

SEC. 3 

Outside 

Grazing 

Districts OTHER 

PROCEEDS 

OF SALES OTHER 

TOTAL 

PAYMENTS 

Alaska 4,064 0 0 0 0 0 4,064

Arizona 82,124 77,642 48,912 0 49,480 0 258,158

Arkansas 0 0 0 0 18,130 0 18,130

California 598,526 48,225 13,018 0 113,620 0 773,389

Colorado 514,788 29,612 63,511 18,632 29,940 0 656,483

Idaho 26,452 19,350 167,378 0 123,674 0 336,854

Montana 21,204 103,597 133,026 0 8,526 596,776 863,129

Nebraska 0 812 0 0 0 0 812

Nevada 105,787 3,168 213,384 0 118,288 1,025,321 b/ 1,465,948

New Mexico 1,240,210 138,216 214,208 15 105,467 10,025 1,708,141

North 

Dakota 1,562 7,314 0 0 6 0 8,882

Oklahoma 0 65 0 0 0 0 65

Oregon 26,823 28,766 126,848 0 9,614 85,486,761 c/ 85,678,812

Utah 694,786 0 132,435 0 27,200 0 854,421

Washington 0 22,651 0 0 11,505 0 34,156

Wisconsin 0 0 0 0 736 0 736

Wyoming 1,084,182 332,280 160,744 31,313 86,234 0 1,694,753

Total States 4,400,508 811,698 1,273,464 49,960 702,420 87,118,883 94,356,933 d/

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 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/ Does not include direct payments of land sales under the Southern Nevada Public Land Management 

Act and some calendar year payments to Clark County, Nevada and the State of Nevada under the 

Santini-Burton Act because they were not reported to Treasury in 2010. 

c/ 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. 

d/ Payments in this table include $1.4 million in payments to the State of Nevada and Nevada county 

water authorities from amounts carried over from 2009. Also, payments in this table include payments 

to states from mineral leasing right-of-way. The Office of Natural Resource Revenues reports those 

payments to Treasury. The 2011 amounts in the Summary of Requirements table do not include 

those amounts. 
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 13

BUDGET SCHEDULES

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Payments to O&C Counties, Title I/III 5884 0001 76 37 0

 Payments to Coos Bay Wagon Road Counties, Title 

I/III 5898 0002 1 0 0

 Payment to O&C and CBWR Counties, Title II 5485 0003 10 3 0

 From grazing fees, etc., public lands outside grazing 

districts 5016 0004 1 1 1

 From grazing fees, etc., public lands within grazing 

districts 5032 0005 1 1 1

 Proceeds from sales 5133 0009 1 1 1

 Payments to counties from national grasslands 5896 0010 1 1 1

 Payments to State and Counties from Nevada Land 

Sales 0013 0 8 18

 Payments to O&C counties under 1937 statute 0014 0 0 8

 Payments to CBWR counties under 1939 statute 0015 0 0 1

Total new obligations 0900 91 52 31

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 8 6 6

 Budget authority:

 Appropriations, mandatory:

 SRS O&C Payments from GF- Title I/III 1200 68 25 0

 SRS Payments from GF-Title II 1200 7 3 0

 SRS O&C Title I/III Payments from receipts 1201 10 12 0

 Proceeds of sales-payments to states 1201 1 1 1

 Payments from grazing fees outside grazing districts 1201 1 1 1

 Payments from grazing fees within grazing districts 1201 1 1 1

 Payments to Counties, National Grasslands, BLM 1201 0 1 1

 SRS CBWR Payments from receipts 1201 1 0 0

 Payments from Nevada Land Sales 1201 0 8 18

 Payments to O&C Grants lands counties under 

1937 statute 1201 0 0 8

 Payments to CBWR counties under 1939 statute 1201 0 0 1
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 14

BUDGET SCHEDULES

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

 Appropriations, mandatory (total) 1260 89 52 31

 Mandatory, Authorizing Committee

 Policy Outlays:

 Baseline Outlays:

Total budgetary resources available 1930 97 58 37

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 6 6 6

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 (gross) 3000 7 8 4

 Obligations incurred, unexpired accounts 3030 91 52 31

 Outlays (gross) 3040 -90 -56 -32

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 8 4 3

 Obligated balance, end of year (net) 3100 8 4 3

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 89 52 31

 Outlays, gross:

 Outlays from new mandatory authority 4100 78 49 29

 Outlays from mandatory balances 4101 12 7 3

 Outlays, gross (total) 4110 90 56 32

 Budget authority, net (mandatory) 4160 89 52 31

 Outlays, net (mandatory) 4170 90 56 32

Budget authority, net (total) 4180 89 52 31

Outlays, net (total) 4190 90 56 32

Object Classification (O) ($ in Millions)
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 15

BUDGET SCHEDULES

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

Direct obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 1111 1 1 0

 Other services from non-Federal sources 1252 2 3 0

 Grants, subsidies, and contributions 1410 88 48 31

 Total new obligations 9999 91 52 31

Character Classification (C) ($ in Millions)

NON-INVESTMENT ACTIVITIES:

 Grants to State and local govts:

 302-Other than shared revenues

 302-Mandatory, Authorizing Committee

 302-Budget Authority

2001-

01 89 52 31

 302-Outlays

2001-

02 90 56 32

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 15 15 0

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources 1000 0
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 16

BUDGET SCHEDULES

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

Budgetary Resources:

 Budget authority:

 Appropriations, mandatory:

 Appropriation (payments under 1937 and 1939 

laws) 1201 0 0 -9

 Appropriations, mandatory (total) 1260 0 0 -9

 Mandatory, Authorizing Committee

 Policy Outlays:

Total budgetary resources available 1930 0 0 -9

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 0 0 -9

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 

(gross) 3000 0 0 0

 Outlays (gross) 3040 0 0 9

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 0 0 9

 Obligated balance, end of year (net) 3100 0 0 9

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 -9

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 -9

 Budget authority, net (mandatory) 4160 0 0 -9

 Outlays, net (mandatory) 4170 0 0 -9

Budget authority, net (total) 4180 0 0 -9
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 17

BUDGET SCHEDULES

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

Outlays, net (total) 4190 0 0 -9

Character Classification (C) ($ in Millions)

NON-INVESTMENT ACTIVITIES:

 Grants to State and local govts:

 302-Other than shared revenues

 302-Mandatory, Authorizing Committee

 302-Budget Authority

2001-

01 0 0 -9

 302-Outlays

2001-

02 0 0 -9

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 0 0 0
Bureau of Land Management 2013 Budget Justifications

Chapter XIV – Miscellaneous Permanent Payments Page XIV - 18

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Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 1

PERMANENT OPERATING FUNDS

APPROPRIATION LANGUAGE SHEET

No Appropriation Language Sheet

EXPLANATION

The Permanent Operating Funds Appropriation contains funds available for use by the BLM for 

the purposes specified in permanent laws and do not require annual appropriation action. The 

activities authorized by the appropriations are funded through various receipts received from the 

sale, lease or use of the public lands and resources. Amounts shown for 2012 and 2013 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. 

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 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 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 eighteen 

counties in western Oregon be paid fifty percent of the 

revenues from Oregon and California grant lands. 

76th Congress, 1st 

Session – Ch. 142-144 –

May 24, 1939, 53 Stat. 

753

An Act Relating to the disposition of funds derived from the 

Coos Bay Wagon Road grant lands provides that Coos and 

Douglas counties in western Oregon be paid for lost tax 

revenue. 

The Omnibus Budget 

Reconciliation Act of 

1993

Amended the Land and Water Conservation Fund Act and 

further expanded collection of recreation use fees to be 

deposited into a special account established for each agency 

in the Treasury of the U.S. to offset the cost of collecting fees. 

The 1993 Interior and 

Related Agencies 

Appropriations Act

The Federal share of receipts from the disposal of salvage 

timber from lands under the jurisdiction of the BLM is 

deposited in a special fund in the U.S. Treasury.

Section 502(c) of the 

Federal Land Policy and 

Management Act of 

1976 (43 U.S.C. 1762(c))

Provides for the permanent appropriation of money collected 

from commercial road users in lieu of user maintenance. 

Receipts are permanently appropriated to BLM for road 

maintenance.

Act of October 30, 1998

(P.L. 105-321)

The legislation provides that BLM will convey property to 

Deschutes County, Oregon, and the amount paid by the 

County pursuant to the Act, may be used by the Secretary of 

the Interior to purchase environmentally sensitive land east of 

Range 9 East of Willamette Meridian, Oregon.

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 OHV trail and resolves other public lands 

issues.

Lincoln County Land 

Sales (P.L. 106-298) 

The Lincoln County Land Act of 2000, among other things, 

authorizes the Secretary to dispose of certain lands in Lincoln 

County, Nevada, to distribute the proceeds as follows: 5 

percent to the State of Nevada, 10 percent the County, and 

85 percent to an interest bearing account that is available for 

expenditure without further appropriation.
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 3

White River Oil Shale 

Mine, Utah Property 

Sale Provisions, The 

2001 Interior and 

Related Agencies 

Appropriations Act (P.L. 

106-291)

The Act authorized the sale of improvements and equipment 

at the White River Oil Shale Mine with the proceeds to be 

available for expenditure without further appropriation to

reimburse (A) the Administrator for the direct costs of the sale; 

and (B) the Bureau of Land Management Utah State Office for 

the costs of closing and rehabilitating the mine. 

The Federal Land 

Transaction Facilitation 

Act (P.L. 106-248)

The Federal Land Transaction Facilitation Act (FLTFA)

provides that the Administration may conduct sales of lands 

that have been classified as suitable for disposal under 

current resource management plans. This law provides that 

receipts from such sales may be used to acquire non-Federal 

lands with significant resource values that fall within the 

boundaries of areas now managed by the Department. 

FLTFA expired on July 25, 2010. It was reauthorized through 

July 25, 2011 by the 2010 Supplemental Appropriations Act 

(P.L. 111-212). The 2013 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 BLM to 

manage public lands for recreational purposes and to collect 

and spend recreation use fees. The purposes for which the 

collections may be spent are generally for maintenance and 

repair of recreation facilities, visitor services, habitat 

restoration related to recreation, law enforcement related to 

public use and recreation, and direct operating and capital 

costs of the recreation fee program. 

Energy Policy Act of 

2005 (P.L. 109-58, 

Sections 224 and 234, 

Section 365, Section 

332, and Section 349)

Established three multi-year appropriations to use a portion of 

onshore mineral leasing receipts to improve oil and gas permit 

processing, facilitate the implementation of the Geothermal 

Steam Act, and clean up environmental contamination on the 

Naval Petroleum Reserve Numbered 2 in California. It also 

authorized the Secretary of the Interior to establish standards 

under which leaseholders may reduce payments owed by the 

reasonable actual costs of remediating, reclaiming, and 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 4

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) 5 percent for use in the general education 

program of the State of Nevada; (b) 10 percent shall be paid 

to the County for use for fire protection, law enforcement, 

education, public safety, housing, social services, 

transportation, and planning; and (c) the remaining 85 percent 

to be used to the reimburse the Bureau of Land Management

and the Department of Interior for certain costs, to manage 

unique archaeological resources, for wilderness and 

endangered species protection, for improving recreational 

opportunities in the County, and for other specified purposes.

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 BLM to retain and spend most of 

the proceeds of sales of those lands to acquire lands in 

wilderness and other areas and for other purposes, and to 

pay a portion to the states in which the sold land was located. 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 5

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

Comparison

by Activity/

Subactivity

2011

Actual

2012

Enacted

2013 Change

From 2012 

Enacted

(+/-)

Program 

Changes

(+/-)

Budget 

Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Permanent 

Operating Funds

Total 485 59,430 485 95,464 -37 +59,311 448 154,775 -37 +59,311

Operations & 

Maintenance of 

Quarters 2 580 2 610 0 +30 2 640 0 +30

Recreation 

Enhancement Act, 

BLM 123 17,398 123 17,500 0 +500 123 18,000 0 +500

Forest Ecosystem 

Health & Recovery 55 3,793 55 4,603 0 +213 55 4,816 0 +213

Timber Sale Pipeline 

Restoration 34 4,048 34 3,883 0 -1,773 34 2,110 0 -1,773

Expenses, Road 

Maintenance 

Deposits 5 1,694 5 2,000 0 0 5 2,000 0 0

Southern Nevada 

Public Land Sales 45 5,808 45 46,512 0 +52,853 45 99,365 0 +52,853

Southern Nevada 

Earnings on 

Investments 5 2,500 5 0 0 +1,000 5 1,000 0 +1,000

Lincoln County Land 

Sales 5 500 5 26 0 +467 5 493 0 +467

Interest, Lincoln 

County Land Sales 0 85 0 0 0 +180 0 180 0 +180

White Pine County 

Special Account 0 6 0 201 0 +6 0 207 0 +6

Stewardship contract 

excess receipts 0 107 0 30 0 -10 0 20 0 -10

Federal Land 

Disposal Account 1 3,660 1 0 0 +4,800 1 4,800 0 +4,800

Owyhee Land 

Acquisition Account 0 0 0 0 0 +2,189 0 2,189 0 +2,189

Washington County, 

Utah Land Acquisition 

Account 0 0 0 0 0 0 0 0 0 0

Silver Saddle 

Endowment 0 0 0 360 0 -360 0 0 0 -360

Carson City Special 

Account 0 0 0 219 0 -219 0 0 0 -219

NPR-2 Lease 

Revenue Account 3 4 3 5 0 +24 3 29 0 +24

Geothermal Lease 

and Use 

Authorization Fund * 42 0 42 0 -37 0 5 0 -37 0

Oil and Gas Permit 

Processing 

Improvement Fund 165 19,247 165 19,515 0 -589 165 18,926 0 -589

* Authority for deposits to this fund has expired. Unobligated balances are being expended. 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 6

PROGRAM OVERVIEW

The following activities account for certain receipts received from the sale, lease, or use of 

public lands or resources. They are available for use by Bureau of Land Management (BLM) for 

the purposes specified in permanent laws and do not require annual appropriation action by 

Congress. Amounts shown for 2012 and 2013 are estimates based on anticipated collections. 

Projected collection amounts consider such factors as market and economic indicators, 

expected public or industry demand levels for services or sales products, fee or collection 

schedules or structures, and certain legislative proposals expected to be enacted into law.

Operations & Maintenance of Quarters –This account is used to maintain and repair all BLM 

employee-occupied quarters from which quarters rental charges are collected. Agencies are 

required to collect quarter rentals from employees who occupy Government-owned housing and 

quarters. This housing is provided only in isolated areas or when an employee is required to 

live on-site at a Federally-owned facility or reservation. The BLM currently maintains and 

operates 248 housing or housing units in 11 States. 

Recreation Fee Program, BLM – The Federal Lands Recreation Enhancement Act (FLREA) of 

2004, Title VIII of the Consolidated Appropriations Act, 2005, Public Law 108-447, provided a 

comprehensive restatement of Federal authority, including BLM’s, to collect and spend 

recreation use fees. This statute replaced prior authorities enacted in the Land and Water 

Conservation Act, the Omnibus Budget Reconciliation Act of 1993, and the Recreational Fee 

Demonstration Program authority enacted in annual appropriation acts since 1996. During 

fiscal 2005, BLM switched to the authorities and arrangements enacted in the FLREA. 

Recreation projects operating under the former Recreational Fee Demonstration program have 

varying fees structures depending upon the day of week, season of use, free use days, and 

standardized entrance fees. Service fees, automated fee collection machines, third-party 

collection contracts, volunteer fee collectors, entrance booths, donations, self-serve pay 

stations, reservation systems, fee collection through the mail for permitted areas, special 

recreation permits for competitive and organized groups, and online Internet reservation 

payment with credit cards are examples of new collection methods the BLM has used as a 

result of the Recreational Fee Demonstration program. The fee structure at each site is 

periodically evaluated to ensure that the fees are comparable to similar sites in the surrounding 

area. These fees, combined with appropriated funds, are used to maintain buildings, shelters, 

water supply systems, fences, parking areas, and landscaping; to pump vault toilets and dump 

stations; to replace or repair broken or non-functioning facilities; to modify facilities to 

accessibility standards; and to collect trash at recreation sites.

The following table provides the actual collections for 2011 and the estimated revenues 

projected for 2012 and 2013 from BLM recreational fee sites. In addition, the table provides 

information on the number of projects approved, the type of work conducted and the amount of 

revenues spent for all three fiscal years.

Appropriation: Permanent Operating Funds
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 7

RECREATION FEE PROJECTS

2011

Actual

2012

Estimated

2013

Budget

Bureau of Land Management

Recreation Use Fees 16,598 16,700 17,200

America the Beautiful pass 800 800 800

Total Recreation Fee Revenues 17,398 17,500 18,000

Unobligated Balance Brought Forward & Recoveries 13,253 13,060 12,594

Funds Obligated 17,591 17,966 18,031

Unobligated Balance 13,060 12,594 12,563

Total Expenditures (outlays) 17,400 18,440 19,840

Obligations by Type of Project

Interp. Visitor Services, issue SRP & RUP 5,451 5,600 5,700

Law Enforcement, Recreation 2,636 3,100 3,000

Facilities Deferred Maintenance 878 700 710

Facilities Capital Improvements Health & Safety 15 11 11

Facilities Routine/Annual Maintenance 4,748 4,000 3,900

Habitat Restoration, Resource Protection 702 850 900

Collection Costs 351 305 310

Fee Mgmt. Agreement & Reservation Services 1,757 2,200 2,200

Administration, Overhead, Indirect Costs < = 15% 1,053 1,200 1,300

Total Obligations 17,591 17,966 18,031

The overwhelming majority of 2011 survey respondents, 92 percent, reported favorably on the 

overall quality of their recreation experience at BLM sites, with the highest user satisfaction 

associated with staff services, recreation use management, and physical facilities. 

Respondents believe that entrance fees or fees for services at the site were "about right," with 

an average score of three on a scale of five with one being “far too low” and five being “far too 

high.” When asked about value received for the fee paid on a five-point scale from "strongly 

disagree" to "strongly agree," 79 percent of respondents agreed or strongly agreed that the 

value of their recreation experience at least equaled the fees paid.
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 8

Use of Fees

BLM’s Annual Maintenance program maintains assets on recreation sites. In fiscal year 2011, BLM 

maintained 92 percent of buildings and 88 percent of non-building assets in fair conditions. An estimated $4.7

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) from all BLM timber 

salvage sales, and from BLM forest health restoration treatments funded by this account. 

Funds from this account are available for planning, preparing, implementing, monitoring, and 

reforestation of salvage timber sales and forest health restoration treatments, including those 

designed to release trees from competing vegetation, control tree densities, and treat hazardous 

fuels. Most of these treatments are implemented through service contracts or commercial 

timber sales. BLM projects may occur on Oregon and California Grant Lands, Coos Bay Wagon 

Road Grant Lands in Oregon, and on the public domain lands throughout the BLM. 

The initial purpose of this fund was to allow quick response to fire and for reforestation of forests 

damaged by insects, disease, and fire. Expanded authorization in the 1998 Interior and Related 

Agencies Appropriations Act allows activities designed to promote forest health, including 

reducing the risk of catastrophic damage to forests in addition to responding to damage events. 

The Federal share of receipts in 2011 was $3.8 million. The expected receipts for 2012 and 

2013 are estimated to be $4.6 million and $4.8 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 2011, the BLM treated 11,000 acres, inventoried 16,000 acres, and offered 74 million board 

feet of timber from salvage and forest restoration activities with FEHRF funds. In 2012, the BLM 

intends to treat 12,000 acres, inventory 14,000 acres, and offer 69 million board feet of timber 

from salvage and forest restoration activities with these funds. In 2013, the BLM plans to treat 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 9

5,000 acres, inventory 3,000 acres and offer 50 million board feet of timber from salvage and 

forest restoration activities with these funds.

Timber Sale Pipeline Restoration Fund – The Pipeline Fund was established under Section 

327 of the Omnibus Consolidated Rescissions and Appropriations Act of 1996. The Act 

established separate funds for the U.S. Forest Service 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 U.S. Forest 

Service lands. Funds are deposited into the fund after statutory payments are made to State 

and local governments. 

Receipts in 2011 were $4 million and are estimated to be $3.9 million in 2012 and $2.1 in 2013. 

In 2010 and 2011, 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 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 used as payment to western Oregon 

counties under existing shared receipts formulae.

 

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 est. 3,883 111,510 4,000 107,254

2013 est. 2,110 113,320 4,000 111,254

At the end of 2011, the unobligated balance in the Fund was $7.8 million. BLM plans to bring 

the Fund balance down to approximately $5.8 million at the end of fiscal year 2013.

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 2011, the BLM completed $24.4 million in 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 10

deferred maintenance work at 43 recreation sites. The principal focus of recreation spending is 

maintenance of existing facilities, resolving critical safety needs, and to meet the requirements 

of the Americans with Disabilities Act. The BLM has made considerable investment in projects 

such as renovation of water and sewer systems, upgrading restroom facilities, improving 

parking areas, and adapting existing recreation sites for handicapped visitors. In 2013, the BLM 

level of expenditures for recreation projects is estimated to be $450,000.

Timber Sales Prepared by use of the Pipeline Fund – Approximately 75 percent of the 

Pipeline Fund is specifically used to prepare timber sales, including all necessary environmental 

inventories and analyses; timber sale layout; timber cruising and appraising; and contract 

preparation costs. Upon completion of these requirements, a sale is officially prepared and 

placed “on-the-shelf” in anticipation of being offered for sale in future years. Timber sale 

preparation also depends on BLM’s skilled and experienced forest management workforce, 

particularly foresters and forest technicians. Today, the average age of this forestry workforce 

in western Oregon is approximately 50 years. Beginning in fiscal year 2009 up to the present, -

the BLM’s focus has been to recruit and train staff to replace existing workforce with the skills 

needed to prepare and administer timber sales.

In 2011, the BLM will have expended $4.0 million from the Pipeline Fund for the preparation of 

timber sales and offered approximately 30 MMBF of timber for sale. The BLM expects to 

deposit $3.9 million and $2.1 million from associated timber sales into this fund in 2012 and 

2013 respectively.

Expenses, Road Maintenance Deposits – This activity provides for the permanent 

appropriation of money collected from commercial road users in lieu of user maintenance. The 

receipts are permanently appropriated to the BLM for road maintenance. Users of certain roads 

under the BLM’s jurisdiction make deposits for maintenance purposes. Moneys collected are

available for needed road maintenance. Moneys collected on Oregon and California Grant 

Lands are available only for those lands (43 U.S.C. 1762(c), 43 U.S.C. 1735(b)). The BLM has 

authority to collect money for road maintenance from commercial users of the public lands and 

the public domain lands transportation system. Most of the funds generated for this account 

come from Oregon and California Grant lands and are available for those lands only, excluding 

$225,000 that is made available for administrative expenses.

Southern Nevada Public Land Sales – This receipt account allows the BLM to record 

transactions authorized by the Southern Nevada Public Land Management Act (SNPLMA) (P.L. 

105-263). The purpose of the Act is to provide for the orderly disposal of certain Federal lands in 

Clark County, Nevada, to meet the demands for community expansion and economic 

development, and to use the proceeds from these sales to address critical environmental and 

educational needs in Clark County and other areas of Nevada. Receipts are generated primarily 

through sale to the public of lands in the Las Vegas valley. Approximately 50,000 acres of public 

land are within the disposal boundary area.

Currently, funds collected from the land sales are distributed as follows:

• Five percent to the State General Education Fund for Nevada’s school children.

• Ten percent to the Southern Nevada Water Authority to fund the infrastructure needed to 

support the development resulting from land sales under the Act.

• 85 percent is deposited into a special account and available to be spent by the Secretary of 

the Interior.
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 11

To date, SNPLMA has generated more than $2.9 billion in deposits to the special fund, including 

earnings on investments, from land sales since its enactment in 1998. When SNPLMA was 

originally passed, proceeds from land sales under the bill were estimated at roughly $70 million 

per year. For more information on SNPLMA, see the 2008 report to Congress, 

at http://www.blm.gov/nv/st/en/snplma.html. See the Collections chapter for more information 

on anticipated land sales in 2012 and 2013.

Earnings on Investments, Southern Nevada Public Land Sales – This account allows the 

BLM to record interest-earning activity on funds that are derived from Southern Nevada land 

sales held by the U.S. Treasury. The SNPLMA, (P.L. 105-263) both directs the sale of specified 

public lands and authorizes the accumulation of interest earnings. Eighty-five percent of gross 

land sales receipts are deposited in a Treasury special account. Funds in the special account 

earn interest in an amount determined by the Secretary of the Treasury and are available for 

expenditure under the provisions of the Act. Earnings on investments are available for 

expenditure. 

Lincoln County Sales – This receipt account allows the BLM to record transactions authorized 

by the Lincoln County Land Sales Act (P.L. 106-298), which was enacted by Congress in 2000. 

The purpose of the Act is to provide for the disposal of certain Federal lands in Lincoln County, 

Nevada. Funds accumulated in the special account may be used to:

• Preserve archaeological resources, conserve habitat, and reimburse the BLM Nevada State 

Office for land sale costs related to this act.

• Process public land use authorizations and rights-of-way stemming from conveyed land.

• Purchase environmentally sensitive land or interests in land in the State of Nevada, with 

priority given to land outside Clark County.

• In 2011, receipts were $500,000. In 2012, sales are expected to produce deposits of 

$26,000, after accounting for the 15 percent paid to the State and county with 85 percent

deposited to this permanent operating fund. Five percent will be paid to the State of Nevada 

and 10 percent to Lincoln County. In 2013, deposits are projected to be $493,000 with the 

same percentage distributions among the operating fund and the State and county. 

Earnings on Investments, Lincoln County Land Act – This account allows the BLM to record 

interest-earning activity on funds held by the U.S. Treasury derived from Lincoln County land 

sales. Lincoln County Land Sales Act (P.L. 106-298), both directs the sale of specified public 

lands and authorizes the accumulation of interest earnings. Eighty-five percent of gross land 

sales receipts are deposited in a Treasury special account. Funds in the special account earn 

interest in an amount 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 U.S. Forest Service pilot stewardship contracting 

authority. Until September 30, 2013, the Forest Service 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 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 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 12

(a) may be retained by the Forest Service 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 2011, the BLM deposited $107,000 into the fund, and expects to deposit $30,000 

in 2011 and $20,000 in 2012.

Since the current authority expires on September 30, 2013, the Budget includes a proposal 

seeking permanent authority to enter into stewardship contracts. It would provide flexibility to 

accomplish collaborative restoration work at a landscape scale. Please refer to the US Forest 

Service Justifications for more information on the Stewardship Contracting Permanent Authority 

proposal.

Federal Land Disposal Account – The Federal Land Transaction Facilitation Act (FLTFA), 

provides authority for the use of receipts from disposal actions by the BLM to purchase 

inholdings and lands adjacent to federally designated areas containing exceptional resources, 

as defined in FLTFA, from willing sellers with acceptable titles, at fair market value, to “promote 

consolidation of the ownership of public and private lands in a manner that would allow for 

better overall resource management administrative efficiency, or resource allocation.

The FLTFA 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’s authority, the funds 

in the account on July 25, 2010 were deposited into the Land and Water Conservation Fund. 

This included $37 million designated for land purchase and $13 million designated to administer 

the BLM’s land sale program, for a total of approximately $50 million. When the one year 

extension expired, the unobligated balance of $2.2 million was transferred to the Land and 

Water Conservation Fund. 

The Budget includes a proposal to reauthorize FLTFA and allow lands identified as suitable for 

disposal in recent land use plans to be sold using the FLTFA authority. FLTFA sales revenues 

would continue to be used to fund the acquisition of environmentally sensitive lands and the 

administrative costs associated with conducting sales. 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 13

The four recipient agencies completed 10 acquisitions in FY2010 and 2011 utilizing FLTFA 

receipts for the following parcels:

FY2010-FY2011 Land Acquisitions Purchased with FLTFA Funding

Agency State Project Year Value Acres

BLM Colorado Canyons of the Ancients National Monument 2010 $3,315,000 4,573.00

BLM Idaho Henrys Lake ACEC 2010 $248,552 712.00

BLM Idaho Snake River ACEC 2010 $87,440 200.00

BLM Montana Lewis and Clark National Historic Trail 2010 $205,000 37.68

BLM Nevada Red Rock Canyon National Conservation Area 2010 $2,214,180 5.13

BLM Nevada Red Rock Canyon National Conservation Area 2010 $1,143,111 2.36

BLM California Johnson Canyon ACEC 2011 $1,200,000 400.00

Total $8,413,282 5,930.17

FWS Montana Red Rock Lakes National Wildlife Refuge 2010 $502,000 320.00

Total $502,000 320.00

NPS New Mexico Aztec Ruins National Monument 2010 $200,000 9.45

Total $200,000 9.45

USFS Nevada Humboldt-Toiyabe National Forest 2010 $777,110 123.00

Total 2010 $777,110 123.00

Grand Total for 2010 and 2011 2010 $9,692,392 5,982.62

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 plans. 

Ninety-six percent of the proceeds from the sale of public land in designated areas are

deposited into the “Owyhee Land Acquisition Account”. This account authorizes the Secretary 

to manage the collections accounts and without further appropriation, to purchase land or 

interests in land in, or adjacent to, the wilderness areas designated by this subtitle, including 

land identified as ‘‘Proposed for Acquisition’’ on the maps described in section 1503(a)(1). The 

authority expires on the date that is 10 years after the date of enactment of this Act; or the date 

on which a total of $8,000,000 from the account is expended. In 2011 there were no receipts. 

The BLM has not planned any sales in 2012. Sales in 2013 are projected to produce 

$2,189,000.

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 orderly sale of certain public lands in Washington County, Utah, that, as of July 25, 

2000, had been identified for disposal in appropriate resource management plans. Proceeds 

from the sale of public land are deposited into the “Washington County, Utah Land Acquisitions 

Account”. Amounts in the account are available to the Secretary to purchase, from willing 

sellers, inholdings of lands or interest in land within the wilderness areas and National 

Conservation Area established by the Omnibus Public Land Management Act. 

Silver Saddle Endowment Account – This account was established by the Omnibus Public 

Land Management Act of 2009, and authorizes under certain conditions the sale of a 62-acre 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 14

parcel to Carson City, Nevada. Proceeds of the sale are to be used by BLM for the oversight 

and enforcement of a perpetual conservation easement to the land to protect, preserve, and 

enhance the conservation values of the land. In 2011 there were no receipts. Revenue from 

2012 sales is projected to be $360,000; none is expected in 2013.

Carson City Special Account – This account was established by the Omnibus Public Land 

Management Act of 2009, and authorizes the sale of approximately 158 acres described in the 

law. Five percent of the proceeds will be paid directly to the State for use in the general 

education program of the State. The remainder is deposited in this account to reimburse BLM 

and the Forest Service for the costs of the sale and appraisals, and to acquire environmentally 

sensitive land or an interest in environmentally sensitive land in the city. In 2011 there were no 

receipts. In 2012, sales are projected to be $219,000; none is expected in 2013. 

NPR-2 Lease Revenue Account – Section 331 of the Energy Policy Act of 2005, P.L.109–58 

transferred Naval Petroleum Reserve Numbered 2 from the Department of Energy to the 

Department of Interior and appropriates a portion of revenues from mineral leases on the site to 

remove environmental contamination. The appropriations end when the cleanup is completed. 

Geothermal Steam Act Implementation Fund – Section 224 of the Energy Policy Act of 2005, 

P.L.109–58, amended the Geothermal Steam Act of 1970. The amendment provides that fifty 

percent of geothermal bonuses, rents, and royalties will be paid to the State and twenty-five 

percent will be paid to the County within the boundaries of which the leased lands or geothermal 

resources are or were located. Section 234 provided that twenty-five percent be deposited to 

BLM’s Geothermal Steam Act Implementation Fund from 2006 through 2010 for the purpose of 

expediting the development of geothermal steam as an energy source. That authority was 

repealed by Congress a year early. A deposit of $2.7 million was made in 2010 from revenues 

collected in 2009 before the authority expired. No additional deposits will be made under 

current law. More information about this fund can be found in the Oil and Gas and Renewable 

Energy Management sections of the Management of Lands and Resources chapter. 

Permit Processing Improvement Fund – As authorized by Section 365 of the Energy Policy 

Act of 2005, P.L.109–58, fifty percent of rents from onshore mineral leases for oil and gas, coal, 

and oil shale on Federal lands were to be deposited into this Fund from 2006 through 2015 for 

the purpose of identifying and implementing improvements and cost efficiencies in processing 

applications for permits to drill and related work. The Administration will submit legislation to 

eliminate this Fund in 2014 and 2015. For more information on the use of this Fund, please see 

the Oil and Gas Management section in the Management of Lands and Resources Chapter. 

Mineral Leasing Naval Oil Shale Reserve - These receipts include revenue derived from the 

bonuses, rents, and royalties from mineral leasing under the Mineral Leasing Act of 1920 that 

were collected from the developed lands within the Naval Oil Shale Reserve Numbers 1 and 3 

in Colorado since the enactment of the 1998 National Defense Authorization Act, amended in 

December, 2002. Naval Oil Shale Reserve areas 1 and 3 were transferred to the BLM 

management by the National Defense Authorization Act of 1998. Amendments to the National 

Defense Authorization Act of 1998 appropriated $1,500,000 in 2003 to perform studies to 

estimate the cost to remediate the NOSR 3 site. The Act also authorized an appropriation of 

those receipts to do the remediation work 60 days after a report was submitted to Congress. 

BLM completed an Engineering Evaluation and Cost Analysis at Naval Oil Shale Reserve 3 

including an evaluation of various cleanup or removal scenarios at the site. The final 

Engineering Evaluation and Cost Analysis was submitted to the Congress on November 2, 

2005. The report to Congress estimated the cost of the preferred cleanup method at 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 15

$6,300,000, and that amount was warranted in 2006. A further analysis of the site determined 

that an additional $16,219,400 was needed to complete the cleanup and that amount was 

warranted on July 8, 2008. The appropriated balance of $12,996,000 was rescinded in 2009. 

An unappropriated balance of $76,665,506 remains in the fund. The balance will remain unless

further legislation is enacted. 
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 16

BUDGET SCHEDULES

Account Symbol and Title

14X9926

Permanent Operating Funds Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Forest ecosystems health and recovery 0001 5 5 5

 Recreation fee demonstration 0002 18 18 18

 Expenses, road maintenance deposits 0003 1 1 1

 Timber sale pipeline restoration fund 0004 4 4 4

 Southern Nevada public land sales (85) 0005 99 65 21

 Lincoln County Lands Act 0008 4 3 1

 Federal Land Disposal Account 0011 1 0 0

 Operation and maintenance of quarters 0013 1 1 1

 Permit Processing Improvement Fund 0014 18 18 18

 Geothermal Steam Act Fund 0015 5 3 1

 Owyhee Land Acquisition Fund 0017 2 0 1

Total new obligations 0900 158 118 71

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 736 657 634

 Recoveries of prior year unpaid obligations 1021 22 0 0

 Other balances withdrawn 1029 -2 0 0

 Unobligated balance (total) 1050 756 657 634

 Budget authority:

 Appropriations, mandatory:

 Recreation fee demonstration program 1201 17 18 18

 Forest ecosystem health and recovery fund 1201 4 5 3

 Timber sales pipeline restoration fund 1201 4 4 2

 Expenses, road maintenance deposits 1201 2 2 2

 S. Nevada public land management 1201 6 47 99

 S. Nevada public land management-interest 

earned 1201 3 0 1

 Permit processing improvement fund 1201 19 18 19

 Operation and maintenance of quarters 1201 0 1 1

 Federal Land Disposal Account 1201 1 0 0
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 17

BUDGET SCHEDULES

Account Symbol and Title

14X9926

Permanent Operating Funds Line

2011 

Act.

2012 

Est.

2013 

Est.

 Owyhee Land Acquisition 1201 3 0 2

 Appropriations, mandatory (total) 1260 59 95 147

 Mandatory, Authorizing Committee

 Policy Outlays:

 Baseline Outlays:

 Policy Outlays:

 Baseline Outlays:

 Policy Outlays:

 Baseline Outlays:

Total budgetary resources available 1930 815 752 781

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 657 634 710

 Special and non-revolving trust funds:

 Other balances withdrawn 1950 2 0 0

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 (gross) 3000 935 753 689

 Obligations incurred, unexpired accounts 3030 158 118 71

 Outlays (gross) 3040 -318 -182 -217

 Recoveries of prior year unpaid obligations, 

unexpired 3080 -22 0 0

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 753 689 543

 Obligated balance, end of year (net) 3100 753 689 543

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 59 95 147

 Outlays, gross:

 Outlays from new mandatory authority 4100 16 47 65

 Outlays from mandatory balances 4101 302 135 152
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 18

BUDGET SCHEDULES

Account Symbol and Title

14X9926

Permanent Operating Funds Line

2011 

Act.

2012 

Est.

2013 

Est.

 Outlays, gross (total) 4110 318 182 217

 Budget authority, net (mandatory) 4160 59 95 147

 Outlays, net (mandatory) 4170 318 182 217

Budget authority, net (total) 4180 59 95 147

Outlays, net (total) 4190 318 182 217

Memorandum (non-add) entries:

 Total investments, SOY: Federal securities: Par 

value 5000 1421 1166 957

 Total investments, EOY: Federal securities: Par 

value 5001 1166 957 785

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 21 21 21

 Other than full-time permanent 1113 3 3 3

 Other personnel compensation 1115 2 2 2

 Total personnel compensation 1119 26 26 26

 Civilian personnel benefits 1121 8 8 8

 Travel and transportation of persons 1210 2 2 2

 Transportation of things 1220 1 1 1

 Rental payments to others 1232 1 1 1

 Communications, utilities, and miscellaneous 

charges 1233 1 1 1

 Other services from non-Federal sources 1252 12 9 3

 Other goods and services from Federal sources 1253 5 5 0

 Operation and maintenance of facilities 1254 1 1 1

 Operation and maintenance of equipment 1257 1 1 1

 Supplies and materials 1260 4 5 5

 Equipment 1310 1 1 1

 Land and structures 1320 11 9 4

 Grants, subsidies, and contributions 1410 4 4 4

 Subtotal, obligations, Direct obligations 1990 78 74 58

Allocation Account - direct:
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 19

BUDGET SCHEDULES

Account Symbol and Title

14X9926

Permanent Operating Funds Line

2011 

Act.

2012 

Est.

2013 

Est.

Personnel compensation:

 Personnel compensation: Full-time permanent 3111 1 1 1

 Other services from non-Federal sources 3252 3 2 3

 Other goods and services from Federal sources 3253 10 8 4

 Land and structures 3320 2 2 2

 Grants, subsidies, and contributions 3410 64 31 3

 Subtotal, obligations, Allocation Account - direct 3990 80 44 13

 Total new obligations 9999 158 118 71

Character Classification (C) ($ in Millions)

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority

2004-

01 59 95 147

 Outlays

2004-

02 318 182 217

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 485 485 448

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources 1000 0 0
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 20

BUDGET SCHEDULES

Account Symbol and Title

14X9926

Permanent Operating Funds Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

Budgetary Resources:

 Budget authority:

 Appropriations, mandatory:

 Federal Land Disposal Account 1201 0 0 8

 Appropriations, mandatory (total) 1260 0 0 8

 Mandatory, Authorizing Committee

 Policy Outlays:

 Policy Outlays:

 Policy Outlays:

Total budgetary resources available 1930 0 0 8

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 0 0 8

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 

(gross) 3000 0 0 0

 Outlays (gross) 3040 0 0 -2

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 0 0 -2

 Obligated balance, end of year (net) 3100 0 0 -2

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 8

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 2

 Budget authority, net (mandatory) 4160 0 0 8
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 21

BUDGET SCHEDULES

Account Symbol and Title

14X9926

Permanent Operating Funds Line

2011 

Act.

2012 

Est.

2013 

Est.

 Outlays, net (mandatory) 4170 0 0 2

Budget authority, net (total) 4180 0 0 8

Outlays, net (total) 4190 0 0 2

Character Classification (C) ($ in Millions)

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority

2004-

01 0 0 8

 Outlays

2004-

02 0 0 2

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 0 0 0
Bureau of Land Management 2013 Budget Justifications

Chapter XV – Permanent Operating Funds Page XV - 22

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Bureau of Land Management 2013 Budget Justifications

Chapter XVI – Miscellaneous Trust Funds Page XVI - 1

MISCELLANEOUS TRUST FUNDS

APPROPRIATIONS LANGUAGE

In addition to amounts authorized to be expended under existing laws, there is hereby 

appropriated such amounts as may be contributed under section 307 of the Act of October 21, 

1976 (43 U. S. C. 1701), and such amounts as may be advanced for administrative costs, 

surveys, appraisals, and costs of making conveyances of omitted lands under section 211(b) of 

that Act, to remain available until expended. (Department of the Interior, Environment, and 

Related Agencies Appropriations Act, 2012.)

EXPLANATION

This appropriation authorizes the BLM to expend funds that are contributed to the BLM. The 

contributions cover various operating expenses. The appropriation consists of both current and 

permanent appropriations. The current appropriations are the contributions authorized by the 

Federal Land Policy Management Act (FLPMA) section 307 (c), which allows parties to 

contribute funds to BLM for resource development, protection, and management activities; for 

acquisition and conveyance of public lands; and for cadastral surveys on Federally controlled or 

intermingled lands. The mandatory appropriation allows BLM to spend funds contributed under 

the authority of the Taylor Grazing Act and under authority of various land survey acts.
Bureau of Land Management 2013 Budget Justifications

Chapter XVI – Miscellaneous Trust Funds Page XVI - 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 the 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 2013 Budget Justifications

Chapter XVI – Miscellaneous Trust Funds Page XVI - 3

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

2013 Change

from 2012

Enacted

(+/ -)

Comparison

by Activity/

Subactivity

2011

Actual

2012

Enacted

Program 

Changes

(+/ -)

Budget

Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Miscellaneous 

Trust Funds 108 26,821 108 21,500 0 +0 108 21,500 0 +0

CURRENT: 97 25,435 97 19,700 0 +0 97 19,700 0 +0

Conveyance of 

Omitted Lands 0 7 0 5 0 +0 0 5 0 +0

Resource 

Development 

Protection & 

Management -

FLPMA

61 20,389 61 15,792 0 +0 61 15,792 0 +0

Resource 

Development 

Protection &

Management -

California OffHighway

34 4,746 34 3,676 0 +0 34 3,676 0 +0

Wildlife & Fish 

Conservation & 

Rehabilitation -

Sikes Act

2 293 2 227 0 +0 2 227 0 +0

Rights-Of-Way 0 0 0 0 0 +0 0 0 0 +0

PERMANENT: 11 1,386 11 1,800 0 +0 11 1,800 0 +0

Resource 

Development 

Protection & 

Management -

Taylor Grazing Act

6 784 6 1,018 0 +0 6 1,018 0 +0

Public Survey 5 602 5 782 0 +0 5 782 0 +0
Bureau of Land Management 2013 Budget Justifications

Chapter XVI – Miscellaneous Trust Funds Page XVI - 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 (1) resource development, protection, 

and management; (2) conveyance or acquisition of public lands; and (3) conducting cadastral 

surveys. 

• Resource Development, Protection and Management of California Off-Highway 

Vehicles - Includes contributions from the State of California Off-Highway Vehicle license 

(“Green Sticker”) fund. The BLM uses this fund for the development, maintenance, and 

operation of benefiting projects on BLM-administered public lands in California. BLM requests 

these funds from the State of California each year through a competitive process. The 

amount awarded to the BLM varies each year. 

• Wildlife & Fish Conservation & Rehabilitation--Sikes Act - The Sikes Act authorizes State 

game and fish departments to charge fees for activities such as hunting, fishing, and trapping 

on Federal lands. These funds are shared with the BLM and used by the BLM for the 

conservation, restoration, management and improvement of wildlife species and their habitat. 

• Rights-of-Way - This activity accounts for funds contributed by private entities to pay the 

casework costs of processing ROW grants requested by them. 

Permanent Appropriations: 

The following funds are permanently available as Permanent Miscellaneous Trust Funds to the 

Secretary of the Interior for efforts as specified by the authorizing Act: 

Appropriation: Miscellaneous Trust Funds

(Current and Permanent)
Bureau of Land Management 2013 Budget Justifications

Chapter XVI – Miscellaneous Trust Funds Page XVI - 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 2013 Budget Justifications

Chapter XVI – Miscellaneous Trust Funds Page XVI - 6

BUDGET SCHEDULE

Account Symbol and Title

14X9971

Miscellaneous Trust Funds Line

2011 

Act

2012 

CY

2013 

BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Resource development FLPMA 0001 15 16 16

 Resource development CA OHV 0002 6 7 7

 Resource development Taylor Grazing 0003 1 1 1

 Public survey 0004 1 1 1

 Sikes Act 0005 0 0 1

Total new obligations 0900 23 25 26

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 46 50 47

 Budget authority:

 Appropriations, mandatory:

 Appropriation (special or trust fund) 1201 27 22 22

 Appropriations, mandatory (total) 1260 27 22 22

 Policy Outlays:

 Baseline Outlays:

Total budgetary resources available 1930 73 72 69

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 50 47 43

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 

(gross) 3000 5 8 12

 Obligations incurred, unexpired accounts 3030 23 25 26

 Outlays (gross) 3040 -20 -21 -27

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 8 12 11
Bureau of Land Management 2013 Budget Justifications

Chapter XVI – Miscellaneous Trust Funds Page XVI - 7

Account Symbol and Title

14X9971

Miscellaneous Trust Funds Line

2011 

Act

2012 

CY

2013 

BY

 Obligated balance, end of year (net) 3100 8 12 11

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 27 22 22

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 11 11

 Outlays from mandatory balances 4101 20 10 16

 Outlays, gross (total) 4110 20 21 27

 Budget authority, net (mandatory) 4160 27 22 22

 Outlays, net (mandatory) 4170 20 21 27

Budget authority, net (total) 4180 27 22 22

Outlays, net (total) 4190 20 21 27

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 5 5 5

 Other than full-time permanent 1113 2 2 2

 Total personnel compensation 1119 7 7 7

 Civilian personnel benefits 1121 2 2 2

 Advisory and assistance services 1251 1 1 1

 Other services from non-Federal sources 1252 5 6 6

 Other goods and services from Federal sources 1253 3 4 4

 Supplies and materials 1260 1 1 1

 Equipment 1310 0 0 1

 Land and structures 1320 1 1 1

 Grants, subsidies, and contributions 1410 3 3 3

 Total new obligations 9999 23 25 26

Character Classification (C) ($ in Millions)

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority 2004-01 27 22 22

 Outlays 2004-02 20 21 27
Bureau of Land Management 2013 Budget Justifications

Chapter XVI – Miscellaneous Trust Funds Page XVI - 8

Account Symbol and Title

14X9971

Miscellaneous Trust Funds Line

2011 

Act

2012 

CY

2013 

BY

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 108 108 108

Appropriations Requests in Thousands of Dollars 

(T)

Budget year budgetary resources 1000 0 19,700
Bureau of Land Management 2013 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 1

HELIUM FUND AND OPERATIONS

APPROPRIATIONS LANGUAGE

No Appropriations Language

EXPLANATION

The Helium Act Amendments of 1960, Public Law 86-777 (50 U.S.C. 167), authorized activities 

to provide sufficient helium to meet the current and foreseeable future needs of essential 

government activities. The Helium Privatization Act of 1996, Public Law 104-273, discontinued 

production and sale of refined helium. Regulations have been finalized to facilitate 

administration and implementation of other provisions granted under 50 U.S.C. 167.
Bureau of Land Management 2013 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 2

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

2011 Enacted 2012 Enacted Fixed 

Costs

Internal 

Transfers

Program 

Changes (+/-)

2013 President's 

Budget

Change From 2012 

Enacted

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Operating Programs

 Production & Sales 18 195,261 18 168,105 0 0 0 0 18 168,900 0 795

 Transmission & Storage Operations 16 3,000 16 3,000 0 0 0 0 16 3,000 0 0

 Administrative & Other Expenses 17 3,000 17 3,000 0 0 0 0 17 3,000 0 0

Total, Operating Programs 51 201,261 51 174,105 0 0 0 0 51 174,900 0 795

Offsetting Collections

 Offsetting Collections 0 -201,261 0 -174,105 0 0 0 0 0 -174,900 0 -795

Total, Offsetting Collections 0 -201,261 0 -174,105 0 0 0 0 0 -174,900 0 -795

Total, Helium Fund 51 0 51 0 0 0 0 0 51 0 0 0
Bureau of Land Management 2013 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 3

Activity: Helium Fund and Operations

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2013 budget request for the Helium Fund and Operations program is $174,900,000 and 51

FTE, a program increase of $795,000 from the 2012 enacted level. The Helium Privatization 

Act of 1996, P.L. 104-273 specifies that all monies in the Helium Fund in excess of $2 million be 

returned to Treasury to apply toward repayment of the helium debt once the environmental 

cleanup for closure is completed.

The amount of the budget request is based on estimated revenue from the sale of open market 

crude, natural gas and liquid gas sales operations of the Crude Helium Enrichment Unit. Sales 

of helium are cyclical. Revenues from helium sales in 2013 are projected to be slightly higher 

than the 2012 level.

PROGRAM OVERVIEW

The Helium Act Amendments of 1960, Public Law 86-777 (50 U.S.C. 167), authorized activities 

to provide sufficient helium to meet the current and foreseeable future needs of essential 

government activities. The Helium Privatization Act of 1996, Public Law 104-273, significantly 

changed the objectives and functions of the Helium program. The legislation established 

revised guidelines for the helium program:

• Discontinue production and sale of refined helium.

• Continue the storage and transmission of crude helium.

• Sell the crude helium reserve over an extended period.

• Oversee production of helium on Federal lands.

The BLM Helium Operation is currently responsible for:

• Administering helium extracted from Federal lands.

• Storing and transmitting of Federal and private crude helium via the helium storage 

system.

• Administering helium fee and royalty contracts for helium extracted from gas produced 

on Federal lands.

• Administering the in-kind and open market crude helium gas sale program.

• Administering the sale of crude helium (coordinated with the private helium industry so 

as not to disrupt the helium market).

• Conducting helium resource evaluation and reserve tracking to determine the extent of 

helium resources.

• Completing the disposal and environmental cleanup of helium refining-related facilities 

not needed for the storage and transmission of crude helium.

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.
Bureau of Land Management 2013 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 4

The Helium Privatization Act of 1996, Public Law 104-273 has resulted in the reduction of 

personnel from 173 (in 1997) to 51 at the end of 2011, cessation of helium refining functions, 

and the initiation of orderly disposal of excess property. The remaining environmental cleanup 

costs will add to the funds typically required in a normal year. These costs vary, depending on 

the results of environmental assessments of the decommissioned production facilities.

Funding History

All the income derived from crude helium sales, private helium storage, and fee sales/royalty 

payments for helium extracted from Federal lands pays the full cost of the helium program.

The Helium Privatization Act of 1996, P.L. 104-273 also specified that all monies in the helium 

fund in excess of $2,000,000 be returned to Treasury to apply toward repayment of the helium 

debt once the environmental cleanup for closure is completed.

Funds generated from the sale of helium are used to repay the Helium Debt. The Helium Debt 

is anticipated to be paid off at the beginning of 2013. 

2013 PROGRAM PERFORMANCE

The amount of the budget request is based on estimated revenue from the sale of open 

market crude, natural gas and liquid gas sales operations of the Crude Helium Enrichment 

Unit. Sales of helium are cyclical. Revenues from helium sales in 2013 are projected to be

slightly higher than the 2012 level.

In 2013, the program will continue to meet the needs of Federal customers through “in-kind” 

crude helium sales to Federal helium suppliers and open market sales in accordance with the 

Helium Privatization Act of 1996, P.L. 104-273. All the income derived from crude helium 

sales, from private helium storage, and from fee sales/royalty payments for helium extracted 

from Federal lands will pay the full costs of the program.

The cumulative percent of the original helium debt repaid will increase to approximately 100

percent in 2013 from 95 percent in 2012.
Bureau of Land Management 2013 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 5

Performance Overview

HELIUM PROGRAM OPERATIONS

Measure 2008

Actual

2009

Actual

2010

Actual

2011

Plan

2011

Actual

2012

Plan

2013 

President's 

Budget

Change 

from 

2012 to 

2013

Long-term 

Target

2016

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 3: Manage Non-Energy Mineral Development

Strategic Plan Measures

Cumulative percent of original 

helium debt repaid at end of fiscal 

year. (BUR)

53% 

$729M/ 

$1,373M

58.6%

$804M/

$1,373M 

68% 

$934M/ 

$1,373M

74% 

$1024M/ 

$1,373M

84% 

$1,149M/ 

$1,373M

95% 

$1,299M/ 

$1,373M

100% 

$1,373M/ 

$1,373M

+5%

100% 

$1,373M/ 

$1,373M

Percent of time the Crude Helium 

Enrichment Unit (CHEU) was 

operating during the fiscal year. 

(BUR)

103% 

350/ 340

101%

342/ 340

100% 

356/ 356

100% 

340/ 340

95% 

345/365

100% 

340/ 340

100% 

340/ 340 0 100% 340/ 340

The percent equals 100 times the number of actual days (DA) the CHEU was operating during the fiscal year, divided by the planned days of operation of the CHEU 

(DP). The number of days the CHEU operates varies from year to year. Natural events such as fires, floods, high winds and other unforeseen events will cause the 

Unit to be shut down. The CHEU is shut down from 5 to 7 days each year for routine maintenance.
Bureau of Land Management 2013 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 6

BUDGET SCHEDULES

Account Symbol and Title

14X4053

Helium Fund Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Production and sales 0801 193 127 127

 Transmission and storage 0802 3 15 15

 Administration and other expenses 0803 7 14 14

Total new obligations 0900 203 156 156

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 59 31 49

 Recoveries of prior year unpaid obligations 1021 1 0 0

 Unobligated balances applied to repay debt 1023 -27 0 0

 Unobligated balance (total) 1050 33 31 49

 Budget authority:

 Spending authority from offsetting collections, 

mandatory:

 Collected 1800 201 174 175

 Spending auth from offsetting collections, mand 

(total) 1850 201 174 175

 Mandatory, Authorizing Committee

 Policy Outlays:

 Baseline Outlays:

Total budgetary resources available 1930 234 205 224

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 31 49 68

Change in obligated balance:

 Obligated balance, start of year (net):

 Unpaid obligations, brought forward, Oct 1 

(gross) 3000 9 11 55

 Obligations incurred, unexpired accounts 3030 203 156 156

 Outlays (gross) 3040 -200 -112 -174

 Recoveries of prior year unpaid obligations, 3080 -1 0 0
Bureau of Land Management 2013 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 7

BUDGET SCHEDULES

Account Symbol and Title

14X4053

Helium Fund Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

unexpired

 Obligated balance, end of year (net):

 Unpaid obligations, end of year (gross) 3090 11 55 37

 Obligated balance, end of year (net) 3100 11 55 37

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 201 174 175

 Outlays, gross:

 Outlays from new mandatory authority 4100 142 70 70

 Outlays from mandatory balances 4101 58 42 104

 Outlays, gross (total) 4110 200 112 174

 Offsets against gross budget authority and 

outlays:

 Offsetting collections (collected) from:

 Non-Federal sources 4123 -201 -174 -175

 Budget authority, net (mandatory) 4160 0 0 0

 Outlays, net (mandatory) 4170 -1 -62 -1

Budget authority, net (total) 4180 0 0 0

Outlays, net (total) 4190 -1 -62 -1

Balance Sheet (F) ($ in Millions)

ASSETS:

Federal assets:

 Federal assets: Fund balances with Treasury 1101 73

 Other Federal assets:

 Inventories and related properties 1802 201

 Property, plant and equipment, net 1803 3

 Total assets 1999 277

LIABILITIES:

 Federal liabilities:
Bureau of Land Management 2013 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 8

BUDGET SCHEDULES

Account Symbol and Title

14X4053

Helium Fund Line

2011 

Act.

2012 

Est.

2013 

Est.

Program and Financing (P) ($ in Millions)

 Interest payable 2102 184

 Debt 2103 252

 Total liabilities 2999 436

NET POSITION:

 Cumulative results of operations 3300 -159

 Total liabilities and net position 4999 277

Object Classification (O) ($ in Millions)

Reimbursable obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 2111 3 3 3

 Civilian personnel benefits 2121 1 1 1

 Communications, utilities, and miscellaneous 

charges 2233 2 4 4

 Other services from non-Federal sources 2252 5 6 6

 Supplies and materials 2260 1 2 2

 Grants, subsidies, and contributions 2410 7 7 7

 Interest and dividends 2430 184 133 133

 Total new obligations 9999 203 156 156

Character Classification (C) ($ in Millions)

INVESTMENT ACTIVITIES:

 Physical assets:

 Major equipment:

 Other physical assets:

 Direct Federal programs:

 Budget Authority

1352-

01 0 0 0

 Outlays

1352-

02 -1 -62 -1

Employment Summary (Q)

Reimbursable civilian full-time equivalent 2001 51 51 51
Bureau of Land Management 2013 Budget Justifications

Chapter XVIII – Administrative Provisions Page XVIII-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 

cost-sharing and partnership arrangements authorized by law, procure printing services from 

cooperators in connection with jointly produced publications for which the cooperators share the 

cost of printing either in cash or in services, and the Bureau determines the cooperator is 

capable of meeting accepted quality standards: Provided further, That projects to be funded 

pursuant to a written commitment by a State government to provide an identified amount of 

money in support of the project may be carried out by the Bureau on a reimbursable basis. 

Appropriations herein made shall not be available for the destruction of healthy, unadopted, wild 

horses and burros in the care of the Bureau or its contractors or for the sale of wild horses and 

burros that results in their destruction for processing into commercial products. (Department of 

the Interior, Environment, and Related Agencies Appropriations Act, 2012.)

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 2013 Budget Justifications

Chapter XVIII – Administrative Provisions Page XVIII-2

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