and Performance Information

Fiscal Year 2015

BUDGET

JUSTIFICATIONS

The United States

Department of the Interior

NOTICE: These budget

justifications are prepared

 for the Interior, Environment 

and Related Agencies 

Appropriations Subcommittees. 

Approval for release of the 

justifications prior to their 

printing in the public record of 

the Subcommittee hearings

may be obtained through

the Office of Budget of the 

Department of the Interior.

BUREAU OF 

LAND MANAGEMENT

Table of Contents 

 

Bureau of Land Management 2015 Budget Justifications

Table of Contents Page i

Table of Contents

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

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

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

2015 Budget Request ....................................................................................... I-2

Maintaining Capital Infrastructure.....................................................................I-10

Legislative Proposals .......................................................................................I-10

Secretarial Initiatives........................................................................................I-13

Indirect Cost Negotiations ................................................................................I-14

Administration’s Management Agenda.............................................................I-14

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

Fixed Costs.......................................................................................................II-2

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

Powering Our Future.........................................................................................II-3

Engaging the Next Generation..........................................................................II-4

Applied Science ................................................................................................II-4

Rangeland Management...................................................................................II-4

Western Oregon ...............................................................................................II-5

Enhancing Core Capability................................................................................II-5

Other Program Changes...................................................................................II-7

Permanent Reprogrammings and Internal Transfers...................................II-8

Other Legislative Proposals ..............................................................................II-8

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

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

The BLM’s Contribution to the Department’s Strategic Plan.............................III-4

Goal Performance Table..................................................................................III-5

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

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

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

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

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

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

Service First.................................................................................................... IV-8

Engaging the Next Generation...................................................... ........ IV-9

Education......................................................................................................IV-10

Interpretation................................................................................................. IV-12

Volunteers..................................................................................................... IV-12

Partnerships.................................................................................................. IV-13

Landscape Approach to Managing the Public Lands..................................... IV-15

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

VI. Collections... ............................................................................................................ VI-1
2015 Budget Justifications Bureau of Land Management

Page ii Table of Contents 

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

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

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

Appropriation Language Citations .................................................................. VII-2

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

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

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

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

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

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

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

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

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

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

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

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

 Subactivity: Fisheries Management......................................................... VII-73

Activity: Threatened and Endangered Species Management ....................... VII-77

Activity: Recreation Management................................................................. VII-81

 Subactivity: Wilderness Management ..................................................... VII-83

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

Activity: Energy and Minerals Management ................................................. VII-93

 Subactivity: Oil and Gas Management .................................................... VII-95

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

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

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

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

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

 Subactivity: Cadastral, Lands & Realty Management............................ VII-125

Activity: Communication Site Management ................................................ VII-133

Activity: Resource Protection and Maintenance ......................................... VII-135

 Subactivity: Resource Management Planning ....................................... VII-137

 Subactivity: Resource Protection and Law Enforcement ....................... VII-143

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

 Subactivity: Hazardous Materials Management..................................... VII-151

Activity: Transportation and Facilities Maintenance.................................... VII-155

 Subactivity: Annual Maintenance and Operation Costs......................... VII-157

 Subactivity: Deferred Maintenance & Capital Improvements................. VII-159

Activity: National Landscape and Conservation System............................. VII-163

Activity: Challenge Cost Share................................................................... VII-167

Activity: Workforce and Organizational Support ......................................... VII-169

 Subactivity: Administrative Support....................................................... VII-183

 Subactivity: Bureauwide Fixed Costs .................................................... VII-187

 Subactivity: Information Technology Management ................................ VII-191

Activity: Mining Law Administration ............................................................ VII-193

Budget Schedules...................................................................................... VII-197
Bureau of Land Management 2015 Budget Justifications

Table of Contents Page iii

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

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

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

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

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

Activity: Land Acquisition .............................................................................. VIII-5

 Subactivity: Land Acquisition.................................................................... VIII-7

 Subactivity: Inholdings, Hardships and Emergencies ............................. VIII-57

 Subactivity: Acquisition Management..................................................... VIII-59

Budget Schedules....................................................................................... VIII-60

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

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

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

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

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

Appropriation Description................................................................................ IX-6

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

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

 Subactivity: Operations and Annual Maintenance .................................... IX-17

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

 Subactivity: Forest Management.............................................................. IX-23

 Subactivity: Reforestation and Forest Development................................. IX-21

 Subactivity: Other Forest Resources Management .................................. IX-25

 Subactivity: Resource Management Planning .......................................... IX-31

Activity: Western Oregon Information and Data Systems .............................. IX-33

Activity: Western Oregon National Landscape Conservation System............ IX-35

Budget Schedules......................................................................................... IX-37

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

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

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

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

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

Budget Schedules............................................................................................ X-7

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

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

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

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

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

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

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

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

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

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

Summary of Requirements ............................................................................ XII-6

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

2013 Total Payments of BLM Receipts to States and Counties.................... XII-13

Budget Schedules........................................................................................ XII-14
2015 Budget Justifications Bureau of Land Management

Page iv Table of Contents 

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

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

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

Authorizations ............................................................................................... XIII-1

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

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

Budget Schedules....................................................................................... XIII-15

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

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

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

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

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

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

Budget Schedules.........................................................................................XIV-6

XV. Helium Fund and Operations..................................................................................XV-1

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

BLM Organization Chart..............................................................................XVIII-3
Executive Summary 

 

Bureau of Land Management 2015 Budget Justifications

Chapter I – Executive Summary Page I - 1

Executive Summary

Since 1976, the Bureau of Land Management 

(BLM) has held stewardship over vast tracts 

of western and Alaskan lands with a multiple 

use and sustained yield mission to maintain 

the health, diversity and productivity of public 

lands for present and future generations.

The Federal Land Management Policy Act of 

1976 (FLPMA) defined that concept of 

managing public lands on the basis of 

multiple use and sustained yield and it is this 

unique mandate that is the BLM’s greatest 

strength. It allows the BLM to meet many 

varied and evolving demands of the changing 

West. This approach emphasizes how people 

and the lands are interconnected and 

interdependent, and balances the diversity of 

interests and values associated with the 

public lands through a landscape approach to 

land management.

As with all great and durable responsibilities, 

public land management is accompanied by 

considerable and persistent difficulties, which 

must be addressed and overcome with 

cooperation and creativity. Since first 

invested with the multiple use and sustained yield mission, the BLM and its methods of 

management have evolved alongside the western communities so closely linked to the public 

lands. 

As the Nation seeks to derive ever-greater benefits from public lands, a balanced approach to 

landscape management, investment in natural infrastructure and ecosystem services, and 

fostering opportunities for energy security and economic progress are reflected in this request. 

Bureau Overview

The BLM manages 247 million surface acres, primarily in 11 western States, including Alaska, 

and 700 million acres of Federal mineral estate, as well as the mineral operations and cadastral 

surveys on 56 million acres of Indian trust lands. In other words, the BLM is entrusted with 13 

percent of the Nation’s surface land. BLM management benefits conservation and traditional 

land users, while contributing to the vitality of local economies and delivering benefits to all 

Americans through outdoor recreation, livestock grazing, mineral development and energy 

production.

Rio Grande del Norte National Monument
2015 Budget Justifications Bureau of Land Management

Page I - 2 Chapter I – Executive Summary 

2015 Budget Request

The 2015 BLM budget request is $1.1 billion, a 

decrease of $5.6 million below the 2014 

enacted level. The budget proposes $ 954.1 

million for the Management of Lands and 

Resources appropriation and $104.0 million for 

the Oregon and California Grant Lands 

appropriation, BLM's two operating accounts. 

This represents a total decrease of $13.3 

million below the 2014 enacted level. The 

budget also proposes $ 25.0 million in 

discretionary funding for Land Acquisition, an 

increase of $5.5 million above the 2014 

enacted level. The 2015 budget continues to 

prioritize support for high priority Administration 

and Secretarial initiatives such as America’s 

Great Outdoors, Powering Our Future, and 

Sage-Grouse habitat conservation.

The BLM’s budget request translates to a cost per acre of about $4.50 to American taxpayers.1

Recent Interior studies indicate that BLM’s management of the public lands provides an 

outstanding economic return to the American people. In 2011,2activities on BLM-managed 

lands contributed $151 billion to the Nation’s economic output, approximately 1 percent of the 

U.S. Gross Domestic Product, and supported over 750,000 jobs through extractive and nonextractive uses of public lands.3 This translates to in economic benefit of over $610 per acre.

This request provides sustainable benefits 

across the West and for the Nation as a 

whole. It maintains working landscapes for 

grazing, timber and recreation; it strengthens 

oversight of onshore oil and gas 

development while providing increased 

opportunities for developing these economic 

resources; and it protects ecosystem 

services that are measurable in the value 

they have to people through, clean water, 

clean air, carbon sequestration, nutrient 

cycling and cultural preservation.

Powering Our Future – The 2015 budget

continues strong support for the 

Administration’s energy goals and 

strengthens management of onshore oil and 

gas development. This request proposes an increase of $20.4 million above 2014 enacted 

levels for the BLM’s oil and gas programs, including requests for both direct appropriations and 

 

1 Public Land Statistics, 2012 (http://www.blm.gov/public_land_statistics/pls12/pls2012-web.pdf)

2

The most recent year for which figures are available

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

Antelope grazing alongside coal bed natural gas 

development near Buffalo, Wyoming

Oil pumping unit near Kremmling, Colorado –

In 2012, onshore oil and gas production on public lands 

produced an estimated $76.9 billion in total economic output
Bureau of Land Management 2015 Budget Justifications

Chapter I – Executive Summary Page I - 3

funding offset by fees collected from oil and gas producers on Federal lands. Included in this 

request is $5.2 million to provide staffing, training, and other resources needed to develop and 

implement ongoing rulemaking efforts and strengthen operational guidance to BLM units. An 

additional $4.6 million will strengthen BLM's core oversight and permitting capabilities, allowing

the BLM to keep up with industry demand and workload. Among other things, the increase will 

enable BLM to fill vacancies and expand staff in key locations, and more fully implement the 

leasing reforms instituted in May 2010. With the increased opportunity for public participation

and a more thorough environmental review process required by BLM leasing reforms to ensure 

defensible and timely lease parcel environmental analyses, BLM’s costs have increased.

The additional funds will ensure oil and gas 

leasing on Federal Lands is a model of 

environmental sensitivity, without diverting

resources from other core oil and gas 

management activities. The 2015 budget request 

also proposes to expand and strengthen onshore 

oil and gas inspections and oversight capability 

through the imposition of new inspection fees. 

This new fee authority will bring onshore oil and 

gas inspections and oversight into congruence 

with offshore oil and gas management, where

inspection and enforcement activities are already 

funded through fees on operators. The BLM estimates that the fee schedule included in the 

budget will generate $48.0 million in offsetting collections for the inspection and oversight 

program, which allows for the proposed reduction of $38.0 million in base program funds, while 

providing for a net increase of $10.0 million for this critical management responsibility. Through 

this increased funding, the BLM will correct 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, and allow the BLM 

to implement a risk-based inspection strategy to improve production accountability, safety, and 

environmental protection of oil and gas operations. Shifting the cost of the inspection activity to 

fees is appropriate and necessary to allow for other critical investments in the oil and gas 

program and other BLM programs in a constrained budget.

The budget proposes to continue charging fees 

for processing APDs through appropriations 

language, generating an estimated $32.5 million 

in 2015. In addition to the discretionary 

appropriations noted above, the BLM budget 

request assumes $18.3 million in mandatory 

funding will be available in 2015 for the oil and 

gas program from the Permit Processing 

Improvement Fund.4 

The BLM budget request maintains funding for 

Renewable Energy at essentially the 2014 

enacted level, providing BLM with the resources 

it needs to continue to aggressively facilitate and 

 

4 Pursuant to Section 365 of the Energy Policy Act of 2005, this mandatory source of funding expires at the end of fiscal year 2015.

Between 2009 and 2013, the BLM authorized nearly 

14,000 Megawatts of renewable energy development on 

public lands 

Drilling a directional gas well near Pinedale, Wyoming
2015 Budget Justifications Bureau of Land Management

Page I - 4 Chapter I – Executive Summary 

support solar, wind, and geothermal energy development.

While this request addresses greater use of renewable energy sources and the responsible 

development of onshore oil and gas to meet U.S. energy needs, coal provides for the 

preponderance of near-term electrical generation for the Nation. Coal produced from Federal

lands is the source of over 20 percent of all U.S. electricity. By maintaining funding for the Coal 

Management program at the 2014 level, this budget request recognizes the critical position coal 

holds in providing for the current, near term, and long term energy needs of the Nation.

BLM’s role in meeting the Nation’s energy 

requirements does not end with feedstocks and 

renewable energy plants. Across the vast public 

lands of the West, the BLM, through rights-ofway issuance, facilitates the efficient delivery of 

energy to meet growing demand and address 

the West’s aging electrical infrastructure, which 

impedes efficient energy transmission and 

inhibits renewable energy development. To 

support necessary upgrades for reliability and 

increased capacity, the budget includes a $5.0 

million increase in the Cadastral, Lands and 

Realty Management program to identify and 

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

substations and related infrastructure in an environmentally sensitive manner. This increase 

complements the Secretary’s Powering Our Future initiative.

Mitigation – Landscape level planning increases certainty for developers, investors, and 

regulated utilities. At the same time, reducing and mitigating wildlife and natural resource risks 

offers greater certainty for other stakeholders that want to minimize harm to wildlife and 

habitats. The BLM is committed to ensuring energy development zones, transmission corridors 

and other projects are carefully and efficiently sited and use geospatial data at the landscape 

level to improve analysis and planning and to demonstrate its application to both linear and 

discrete, site-specific development projects.

Sage-Grouse Conservation – In a March 

2010 decision, the U.S. Fish and Wildlife 

Service (FWS) determined that Greater 

Sage-Grouse was “warranted, but 

precluded” for listing under the Endangered 

Species Act. The U.S. Fish and Wildlife 

Service (FWS) stated that the BLM was not 

“fully implementing the regulatory 

mechanisms available” to ensure the 

species’ conservation. To address FWS 

concerns, the BLM initiated a formal 

planning process in 2011.

Beginning in 2013, the BLM requested 

$15.0 million annually to implement broadscale Sage-Grouse planning and 

conservation activities, including 

BLM manages about half of the remaining sagebrush biome in 

the United States – maintaining and restoring these landscapes 

is critical to conserving Greater Sage-Grouse populations

Livestock grazing alongside a transmission corridor near 

Price, Utah
Bureau of Land Management 2015 Budget Justifications

Chapter I – Executive Summary Page I - 5

amendment or revision of 98 land use plans to designate priority habitat, perform habitat 

restoration and improvement, and map, assess and monitor that habitat. The BLM operating 

plan, written pursuant to the full-year continuing resolution for 2013 (P.L. 113-6), included the 

full funding included in the budget request for this effort. The $15.0 million funding level was 

maintained in the 2014 enacted budget.

The 2015 President’s budget request also includes a total of $15.0 million for Sage-grouse 

conservation efforts. In 2015, the BLM will conclude remaining work to incorporate necessary 

regulatory mechanisms into its land use plans to address conservation as the focus progresses 

to implementing the plans and supporting habitat restoration and monitoring. Of the total 

funding, $2.5 million will be used to continue support for the USDA Natural Resources 

Conservation Service’s broad-scale Sage-Grouse habitat monitoring activities to ascertain the 

effectiveness of habitat management and the effect of land use authorizations.

Methane Capture – As natural gas development takes an increasingly important role in the 

Nation’s energy profile and as an activity on the public lands, the BLM is seeking to further

reduce resource loss and environmental impact from the release of methane gas. The BLM is 

engaged in three primary efforts to limit the release of methane gases: establishing standards to 

minimize the loss from venting and flaring; limiting emissions of waste mine methane from 

Federal leases for coal and other solid minerals; and utilizing infrared monitoring within the 

BLM’s oil and gas Inspection and Enforcement Program.

America’s Great Outdoors – More than 64 

million people live within 100 miles of BLMmanaged lands in the West. Thus, the BLM is 

a key part of connecting Americans to the 

outdoor opportunities that contribute to and 

preserve the social fabric of this Nation, bond 

families across generations, and preserve the 

character of the rural American West. Many 

BLM-managed lands remain open to use for

distinctly American pursuits such as offhighway vehicle riding, rockhounding and gold 

panning, target shooting, and hunting, 

opportunities which are becoming increasingly 

scarce through urbanization and subdivision of 

once open lands. 

The 2015 budget includes a $1.9 million increase for the National Landscape Conservation 

System (NLCS) to address high priority needs in national monuments and national conservation 

areas, including developing management plans for recently designated units and developing 

and implementing travel management plans for high-use units. Additionally, the NLCS request 

includes an increase of $900,000 in Recreation Resources Management for planning, visitor 

safety, and interpretive services. Likewise, the BLM will use a $742,000 increase in the Cultural 

Resources Management program to address the highest priority needs in its backlog of sites 

requiring inventory and stabilization. 

The 2015 budget also includes increases for programs funded through the Land and Water 

Conservation Fund, a vital component of the America’s Great Outdoors initiative. The 2015 

budget proposal includes a total of $89.6 million for BLM Federal land acquisition, including 

$25.0 million in requested discretionary appropriations and $64.4 million in mandatory funding. 

A rider and horse gallop on the Pony Express Trail in 

Wyoming
2015 Budget Justifications Bureau of Land Management

Page I - 6 Chapter I – Executive Summary 

Enterprise Geospatial Information System – The budget request includes a $3.8 million 

increase in Resource Management Planning to support implementation of BLM’s Enterprise 

Geospatial Information System (EGIS). EGIS aggregates data and viewing information across 

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

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

EGIS proposal is integrated within Interior’s growing enterprise GIS capabilities and serves as a 

critical component of the Department’s corporate EGIS strategy. 

Cooperative Landscape Conservation – As 

average temperatures rise, droughts are 

increasing, wildfire is more frequent and 

catastrophic, snowpack is declining, water 

supplies are diminishing in key areas of the West 

and arctic permafrost is thawing in Alaska, 

creating challenges, as well as opportunities, on 

the landscape. Many of these changes weaken 

existing ecological conditions and change the 

balance of natural ecosystem services that have 

been relied upon for generations. In order to 

understand and respond to these opportunities 

and challenges on public lands, the BLM is 

conducting Rapid Ecoregional Assessments and 

transitioning to a landscape approach for 

managing public lands. These efforts will inform 

land management decisions as the BLM continues its role of managing the public lands for 

multiple use and sustained yield, and continues its role in the Nation’s energy infrastructure. The 

2015 request continues strong support for the Cooperative Landscape Conservation initiative, 

with funding at the 2014 enacted level. The 

BLM will begin work with a number of 

Landscape Conservation Cooperatives to 

develop synthesis reports covering all or 

significant portions of four ecoregions: The 

Central Basin and Range, the Colorado 

Plateau, the Mojave Basin and Range, and the 

Northwestern Plains. 

Engaging the Next Generation – The 2015 

BLM budget request includes a total of $4.8 

million for BLM’s youth programs and 

partnerships, a $1.3 million increase in the 

Soil, Water and Air program over the 2014 

enacted level. These efforts allow the BLM to 

accomplish high priority projects and promote 

quality participant experiences and pathways 

to careers.

Other Key Program Increases – The budget 

request includes a program increase of $1.2 

million in the Challenge Cost Share program

A youth crew, accompanied by a BLM Law Enforcement 

Ranger, remove trash from the Sonoran Desert National 

Monument

Challenge Cost Share:

High Return Investment on the Landscape

In 2013, Challenge Cost Share partners 

invested $2.50 for every federal program dollar 

to support sage-grouse, National Landscape 

Conservation System, and healthy land 

projects:

 In Montana, the Adopt-A-Lek project 

managed by Montana Audubon is an effort 

that substantially supplements the 

systematic monitoring of sage-grouse. 

 At the Cascade Siskiyou National 

Monument in Oregon, a partnership with the 

State to reintroduce and augment 

Endangered Gentner’s lily was identified by 

U.S. Fish and Wildlife Service as the 

primary approach needed to delist the 

species.

 In Alaska, the Kid Explorers program, brings 

economically disadvantaged students to the 

Campbell Creek Science Center to 

participate in active, outdoor, and science 

activities.
Bureau of Land Management 2015 Budget Justifications

Chapter I – Executive Summary Page I - 7

that will leverage support from local partner organizations to address priorities for on-the-ground 

habitat conservation, recreation and cultural resources protection work.

In addition, a $1.2 million increase to support high priority planning efforts. These plans provide 

the basis for every management action on BLM-managed public lands. Keeping them current in 

an era of rapidly changing resource use patterns, climatic and land health conditions, population 

growth, and public recreation on the public lands is critical to effective resource management 

and protection.

A $2.8 million increase in the Wild Horse and 

Burro program, on top of the $2.0 million 

increase funded in 2014, allows the BLM to 

aggressively implement recommendations in the 

June 2013, National Academy of Sciences 

report “Using Science to Improve the BLM Wild 

Horse and Burro Program – A Way Forward”, 

including expanding ongoing research on 

population control methods. Curbing 

reproduction of wild horses on the range is 

critical to reining in the costs of this program. 

A $2.8 million program increase in the 

Abandoned Mine Lands program will support 

implementation of the remediation plan goals for 

2015 at the Red Devil Mine site in Alaska.

The budget includes a program increase of $1.5 million in Riparian Management, a slight boost 

in capability for conducting riparian protection and restoration activities. 

A $909,000 program increase in the Soil, Water and Air Management program will enable the 

BLM to meet its highest priority needs for survey, inventory and monitoring work. 

The budget includes a $500,000 program increase for Annual Maintenance Operations Costs to 

improve BLM’s ability to address ongoing maintenance needs and an additional $4.2 million 

increase for Deferred Maintenance and Capital Improvements, enhancing core capability to 

address the BLM’s deferred maintenance backlog of over $600 million. 

The request also includes a program increase 

of $454,000 in Administrative Support to keep 

up with ongoing workload. 

Program Reductions – The budget request 

includes $19.0 million for the Alaska 

Conveyance program, a program decrease of 

$3.1 million from the 2014 enacted level. This 

reduction reflects the BLM’s expected 

achievements resulting from a significant 

increase in funding in 2014 and efficiencies 

created through recent implementation of 

more efficient cadastral survey methods. The 

Wild horses of the McCullough Peaks Herd Management 

Area in Wyoming

A survey conducted in Alaska prior to conveyance 
2015 Budget Justifications Bureau of Land Management

Page I - 8 Chapter I – Executive Summary 

2015 request level plots a course for completing all surveys and land transfers in ten years. The 

BLM expects to finish the surveys for Alaska Native Corporation land selections with the 2014 

appropriation, with land transfers to the Corporations completed within the following five years. 

The BLM plans to complete surveys for the State of Alaska land selections within three to five 

years, again completing those land transfers within the following five years. 

The budget includes program reductions totaling $11.0 million in the Oregon and California 

Grant Lands account. A $1.6 million decrease in the Western Oregon Forest Management 

assumes funding from two permanent appropriations supporting timber and forest health will 

ensure timber sales are sustained at a level comparable with 2012 and 2013. The BLM expects 

increased salvage timber sales resulting from 2013 fires, temporarily increasing the volume 

offered in 2014. A decrease of $4.4 million in the Western Oregon Other Forest Resources 

program will be managed by reducing a range of activities, including inventory and monitoring, 

rangeland health assessments and restoration projects, and activities in support of recreation. 

A $4.2 million decrease in the Western Oregon Resource Management Planning program 

reflects lower funding needs as the program moves to completing the six revised resource 

management plans in June 2015. Other funding reductions include $590,000 for Western 

Oregon Annual Maintenance and Operations, and $156,000 for Western Oregon Information 

and Resource Data Systems.

Offsetting Collections for Grazing – As in 

previous budgets, the BLM proposes to 

begin a pilot project for grazing permitting 

through proposed grazing administration 

fees. A fee of $1 per animal unit month is 

estimated to generate $6.5 million in fee 

collections in 2015, more than offsetting a 

$4.8 million program decrease in the 

Rangeland Management program, thereby 

enhancing BLM’s capacity for processing 

grazing permits. The net increase of $1.7 

million in program resources will allow BLM 

to make more progress in addressing the 

grazing permit backlog.

Budget Structure and Technical Changes – The budget proposes to combine the current 

Cadastral Survey subactivity and Land and Realty Management subactivity into a new 

Cadastral, Lands, and Realty Management subactivity. This consolidation allows flexible 

management at the field level to accomplish BLM’s highest priority needs and reflects the 

complementary nature of the programs and personnel.

The tables below summarize the BLM’s 2014 Budget Request and available mandatory 

appropriations by major appropriation account:

The BLM administers nearly 18,000 permits and leases held by 

ranchers who graze livestock on public lands
Bureau of Land Management 2015 Budget Justifications

Chapter I – Executive Summary Page I - 9

vs. 2014 Requested

Management of Lands & Resources 902,160 956,875 -2,790 954,085

Grazing Administration Management* - - +6,500 6,500

Mining Law Administration* 37,677 39,696 +0 39,696

Oil & Gas Permit Processing* 32,500 32,500 +0 32,500

Onshore Oil & Gas Inspection and Enforcement* - - +48,000 48,000

Communication Site Management^ 1,898 2,000 +0 2,000

Management of Lands & Resources, Before Offsets 974,235 1,031,071 +51,710 1,082,781

Offsetting Collections † -72,075 -74,196 -54,500 -128,696

Management of Lands & Resources 902,160 956,875 -2,790 954,085

Oregon and California Grant Lands 106,013 114,467 -10,510 103,957

Land Acquisition 21,175 19,463 +5,537 25,000

Service Charges, Deposit, & Forfeitures‡~ 26,342 31,092 +1,373 32,465

Offsetting Collections -26,342 -31,092 -1,373 -32,465

Total, Service Charges, Deposits & Forfeitures - - - -

Total, Current Discretionary 1,029,348 1,090,805 -7,763 1,083,042

 Range Improvements◊ 9,490 9,280 +720 10,000

Total, Current Mandatory, Federal Funds 9,490 9,280 +720 10,000

Total, Current, Federal Funds 1,038,838 1,100,085 -7,043 1,093,042

 Miscellaneous Trust Funds, Current Portion‡Δ◊ 19,085 19,024 +1,476 20,500

Current Mandatory, Contributed Funds 19,085 19,024 +1,476 20,500

Total, Current Appropriations 1,057,923 1,119,109 -5,567 1,113,542

 Current Appropriations 

(in $000)

 2014 

Enacted 

2015 President's Budget 2013 

Operating 

Plan with 

Sequester 

◊ 2014 Amount includes 7.2% sequester pursuant to Section 254 ofthe Balanced Budget and Emergency Deficit Control Act of 1985, as amended

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

collections (See Offsetting Collections line)

‡Shown as estimated amounts for fiscal years 2014 and 2015; Authority to spend collections appropriated annually; budget authority created 

when collections are recognized

†Amount for fiscal years 2014 and 2015; includes estimates of offsetting collections for direct spending authority for program activities:

Annual Maintenance (currently $140/claim) and Location Fees (currently $34/claim) for Locatable Minerals offsetting Mining Law Administration,

Application for Permit to Drill (APD) Fees (currently $6,500/ADP) offsetting Oil & Gas Permit Processing,

Communication Site rental fees offsetting Communication Site Management,

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

A $1.00 per animal unit month administrative fee proposed in this request offsetting Grazing Administration Management

Change between 2014 and 2015 reflects the change in available appropriations between 2014 and 2015 due to sequester in 2014

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

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

~Collections authorized by the Federal Land Policy and Management Act of 1976 (FLPMA), as amended (43 USC 1735), and the Mineral Leasing 

Act of 1920, as amended by the Trans-Alaska Pipeline Act of 1973 (30 USC 185)
2015 Budget Justifications Bureau of Land Management

Page I - 10 Chapter I – Executive Summary 

Maintaining Capital Infrastructure

Public land management is a capital-intensive enterprise, requiring buildings, administrative 

facilities, recreation sites, transportation assets and dams to protect employee and visitor safety, 

resource values, and public investments, as well as to provide facilities for management and 

stewardship. As directed by the Administration, the BLM is right-sizing the Bureau’s fixed assets

to determine those assets whose ongoing operational and maintenance costs are no longer 

appropriate and prioritize the distribution of limited funding to the highest priority assets. 

Presently the BLM has a deferred maintenance backlog exceeding $600 million. The 2015 

budget request includes a program increase of $4.2 million for deferred maintenance.

Energy conservation, sustainability, and reducing the leased footprint are primary 

considerations in BLM’s Space Management, a portion of Bureauwide Fixed Costs. The 

program focuses on general purpose and warehouse space acquired through direct lease and 

General Services Administration (GSA)-provided space in federally owned or leased buildings. 

This policy supports provisions of the Energy Policy Act of 2005, Energy Independence and 

Security Act of 2007, Executive Orders 13123, and 13514. 

Legislative Proposals

Oil and Gas Management Reforms – The Administration proposes a package of legislative 

reforms to bolster and backstop administrative actions being taken to reform the management of 

Interior’s onshore and offshore oil and gas programs, with a key focus on improving the return to 

taxpayers from the sale of these Federal resources and on improving transparency and 

oversight. Proposed statutory and administrative changes fall into three general categories: 

vs. 2014 Estimate

Miscellaneous Trust Funds, Permanent Portion◊ 2,694 1,670 +130 1,800

Permanent Operating Funds◊ 57,219 87,140 +26,883 114,023

Abandoned Well Remediation Fund - 10,000 +26,000 36,000

Miscellaneous Permanent Payment Accounts 41,974 48,559 -34,433 14,126

Land Acquisition - - +64,397 64,397

Helium Fund 202,186 23,554 -2,671 20,883

Helium Fund Offsetting Collections -202,186 -23,554 +2,671 -20,883

Total, Permanent Funds 101,887 147,369 +82,977 230,346

vs. 2014 Estimate

Fulltime Equivalents (FTEs) 10,228 10,234 +137 10,371

 2013 2015

Actual 

 Permanent Appropriations 

(in $000)

 2014 

Estimate 

2015

◊ 2014 amount includes 7.2% sequester pursuant to Section 254 ofthe Balanced Budget and Emergency Deficit Control Act of 1985, as amended

 Exempt from sequestration in 2014

 2014 amount includes 7.2% sequester of payments to States and Counties pursuant to Section 254 ofthe Balanced Budget and Emergency 

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

made in 2014 (for 2013) to Oregon & California Grant Lands and Coos Bay Wagon Road counties under Public Law 113-40 

Note: Does not include the BLM Working Capital Fund, nor the offsetting collections of that fund

 2013 

Available 

PostSequester 

Employees 2014 

Estimate 
Bureau of Land Management 2015 Budget Justifications

Chapter I – Executive Summary Page I - 11

advancing royalty reforms; encouraging diligent development of oil and gas leases; and 

improving revenue collection processes.

Royalty reforms include evaluating 

minimum royalty rates for oil, gas, and 

similar products; adjusting onshore royalty 

rates; analyzing a price-based tiered royalty 

rate; and repealing legislatively-mandated 

royalty relief. Diligent development 

requirements include shorter primary lease 

terms, stricter enforcement of lease terms, 

and monetary incentives to get leases into 

production e.g., through a new per-acre fee 

on nonproducing leases. Revenue 

collection improvements include 

simplification of the royalty valuation 

process, elimination of interest accruals on 

company overpayments of royalties, and 

permanent repeal of DOI's authority to 

accept in-kind royalty payments. Collectively, these reforms will generate an estimated $2.5 

billion in net revenue to the Treasury over 10 years, of which approximately $1.7 billion will 

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

payments through these reforms.

The oil and gas reform package includes a proposal to amend and extend certain authorities 

provided to BLM by Section 365 of the Energy Policy Act of 2005. These authorities have 

improved BLM's efficiency in processing Applications for Permits to Drill and other use 

authorizations. Specifically, the legislative proposal would amend Section 365 to provide BLM 

with the flexibility to establish permit processing pilot offices, so the authority is not limited to 

only those pilot offices explicitly identified in the Energy Policy Act, as amended, and extend the 

authority for BLM to pay other agency personnel assigned to these pilot offices. The 2015 

legislative proposal does not extend the Permit Processing Improvement Fund that was also 

established by Section 365. This mandatory funding source is scheduled to expire at the end of 

FY 2015.

Hardrock Mining Reform – The 2015 budget includes two legislative proposals to reform 

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

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

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

through a new Abandoned Mine Lands (AML) fee on hardrock production. Just as the coal 

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

hardrock mining industry responsible for the remediation of abandoned hardrock mines. The 

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

private lands. The proposed AML fee on the production of hardrock minerals will be charged on 

the volume of material displaced after January 1, 2015. The receipts would be split between 

Federal and non-Federal lands. The Secretary would disperse the share of non-Federal funds 

to each State and Tribe based on need. Each State and Tribe would select its own priority 

projects using established national criteria. The proposed hardrock AML fee and reclamation 

program will operate in parallel with the coal AML reclamation program as part of a larger effort 

Oil Production Storage Tank Battery 
2015 Budget Justifications Bureau of Land Management

Page I - 12 Chapter I – Executive Summary 

to ensure the Nation’s most dangerous abandoned coal and hardrock AML sites are addressed 

by the industries that created the problems.

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

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

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

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

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

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

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

leasing system; however, the proposal also increases the annual maintenance fees under the 

General Mining Law of 1872 and eliminates 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 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. 

Reauthorize the Federal Land 

Transaction Facilitation Act

(FLTFA) – The 2015 budget 

proposes to reauthorize the Act, 

which expired in July 2011, and 

allow lands identified as suitable for 

disposal in recent land use plans to 

be sold using the FLTFA authority. 

The FLTFA sales revenues would 

continue to be used to fund the 

acquisition of environmentally 

sensitive lands and to cover the 

administrative costs associated 

with conducting sales.

National BLM Foundation – The 

BLM proposes to establish a 

congressionally chartered 

foundation. Established as a 

charitable, nonprofit organization, the foundation would benefit the public by protecting and 

restoring natural, cultural, historic, and recreational resources for future generations. Several 

examples illustrate the benefits to Federal programs from this type of foundation, including the 

National Park Foundation, the National Fish and Wildlife Foundation, and the National Forest 

Foundation. 

Historically, the BLM has been successful at initiating and maintaining partnerships locally to 

achieve land restoration objectives, such as the Restore New Mexico initiative where the BLM 

worked with partners to establish a healthy mosaic of native grasslands and woodlands that 

have provided open prairies and mountainous landscapes for antelope, deer, elk, and bighorn 

sheep. Similarly, in Utah, the BLM has a vast array of partners supporting visitor centers, 

restoring habitat and native plants, and offering environmental education opportunities to the 

public. 

Using FLTFA funds, the BLM purchased a 4,573-acre inholding at Canyon 

of the Ancients National Monument, assisted by The Conservation Fund. 

The parcel included Jackson's Castle, one of the most important 

archeological sites in the Southwest
Bureau of Land Management 2015 Budget Justifications

Chapter I – Executive Summary Page I - 13

As resource issues diversify across larger landscapes and include a wider set of constituents, 

the BLM seeks this approach to reach those communities and engage with the public better. 

Establishing the foundation broadens the BLM’s partnership capabilities to a national scale.

Secretarial Initiatives

America’s Great Outdoors – America’s Great Outdoors fosters the intrinsic link between 

healthy economies and healthy landscapes to increase tourism and outdoor recreation in 

balance with preservation and conservation. This initiative features collaborative and 

community-driven efforts and outcome-focused investments focused on preserving and 

enhancing rural landscapes, urban parks and rivers, important ecosystems, cultural resources, 

and wildlife habitat. These activities incorporate the best available science, a landscape-level 

understanding, and stakeholder input to identify and share conservation priorities. The 

President’s budget for the BLM proposes $1.058 billion for BLM Operations a $13.3 million

decrease from the enacted level and $25.0 million in the discretionary request for Land 

Acquisition, an increase of $5.5 million over the 2014 enacted level, all of which support AGO. 

Powering Our Future and Responsible Use of Our Resources – Through early planning, 

thoughtful mitigation, and the application of sound science, Interior is working to ensure the 

Administration’s “all-of-the-above” energy strategy includes not only traditional sources, but also 

furthers development of new, cleaner resources to help mitigate the causes of climate change. 

The President’s budget for the BLM proposes $184.0 million, a $21.6 million increase for energy 

related activities in support of these objectives.

Land and Water Conservation Fund -- The Department of the Interior will submit a legislative 

proposal to permanently authorize annual funding, without further appropriation or fiscal year 

limitation for the Land and Water Conservation Fund (LWCF). Starting in 2016, $900 million 

annually in mandatory funds would be available. During the transition to full mandatory funding 

in 2015, the budget proposes $900 million in total LWCF funding, comprised of $550 million 

mandatory funds and $350 million discretionary funds. The amounts requested include the 

authorized levels for the Department of the Interior and the Department of Agriculture. 

In 2015, the proposal includes $25 million in discretionary funding and $64.4 million in 

mandatory funding for BLM’s land acquisition program

Centennial Land Management Investment Fund – Complementing the President’s 2015 

Budget Request is a separate Opportunity, Growth, and Security Initiative, which shows how 

additional investments in 2015 can spur economic progress, promote opportunity, and 

strengthen national security. The Administration proposes a balanced package of spending 

cuts and closing tax loopholes to fully offset the cost of these pro-growth investments. As part of 

the President’s Opportunity, Growth, and Security Initiative and a permanent legislative 

proposal, the BLM will have the opportunity to compete for conservation and infrastructure 

project funding included within the Centennial initiative. The Centennial initiative supporting the 

100th Anniversary of the National Park Service features a competitive opportunity for the public 

lands management bureaus within Interior and the U.S. Forest Service to address conservation 

and infrastructure project needs. The program will be managed within Interior’s Office of the 

Secretary in conjunction with the Department of Agriculture with clearly defined project criteria. 

The Administration proposes $100.0 million as part of the Opportunity, Growth and Security 

Initiative and $100.0 million a year for three years as part of a separate mandatory proposal.
2015 Budget Justifications Bureau of Land Management

Page I - 14 Chapter I – Executive Summary 

Initiative Investments in Research and Development – As part of the President’s 

Opportunity, Growth, and Security Initiative, the BLM is included in a proposed $140.0 million 

investment in Interior’s research and development activities. This investment reflects the 

President’s ongoing commitment to strengthen America’s competitiveness through scientific 

discovery and innovation, and the Department of the Interior’s capacity to use science to inform 

decision making to support sustainable stewardship. Through this Initiative, research and 

development will focus on outcomes, investing particularly in the development of decision-ready 

tools and information managers can use in the stewardship of natural resources.

The BLM has identified research and development projects to support scientific objectives in:

 Energy and Mineral Development to advance renewable energy development and 

permitting in the areas of wind, solar and geothermal energy and to understand, 

minimize, and mitigate the potential impacts of energy and mineral development on 

environmental and human health.

 Climate Resilience to develop information and tools enabling resource managers to 

understand the potential impacts of a changing climate and to plan and adjust their 

operations to be resilient in managing the public trust and ensuring sustainable 

stewardship of resources.

 Landscape Scale Ecosystem Management, Restoration, and Protection to develop 

information and tools, analysis, and monitoring to manage resources and understand 

trade-offs on a landscape scale, including the restoration and protection of ecological 

systems and important cultural landscapes.

Climate Resilience Fund – The President’s Opportunity, Growth, and Security Initiative 

includes a proposal to establish a Climate Resilience Fund to help communities across the 

country better prepare for existing and future threats exacerbated by climate change. Work in 

BLM’s Soil, Water and Air Management program is an example of the type of work that could be 

supported with this type of investment.

Indirect Cost Negotiations

The 2015 BLM budget includes an increase of $47,000 for reviews of indirect cost rate 

proposals conducted by the Office of Indirect Cost Services at the request of BLM. The Office 

of Indirect Cost Services negotiates indirect cost rates with non-Federal entities doing business 

with the Department, for example, tribal governments, State and local governments, insular

governments, and nonprofit organizations. In 2015, this activity will be supported directly by 

bureau payment for services rather than as a direct appropriation in the Office of the Secretary.

Administration’s Management Agenda

The Department of the Interior supports the President’s Management Agenda to cut waste and 

implement a government that is more responsive and open. The BLM budget supports the 

Department’s plan to build upon the Accountable Government Initiative through a set of 

integrated enterprise reforms designed to support collaborative, evidence-based resource 

management decisions; efficient Information Technology Transformation; optimized programs, 

business processes, and facilities; and a network of innovative cost controlling measures that 

leverage strategic workforce alignment to realize an effective 21st Century Interior organization.

The FY 2015 President’s Budget Request includes $717,000 for the BLM participation in the 

Department’s Information Technology Transformation efforts through the Department’s Working 
Bureau of Land Management 2015 Budget Justifications

Chapter I – Executive Summary Page I - 15

Capital Fund. These funds will support IT Transformation project-level planning, coordination,

and the implementation of enterprise IT services.
2015 Budget Justifications Bureau of Land Management

Page I - 16 Chapter I – Executive Summary 

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Summary of Program 

Changes 

 

Bureau of Land Management 2015 Budget Justifications

Chapter II – 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 2015 budget. 

Fiscal Year 2014 Enacted (P.L. 113-XX) $1,100,085

Fixed Costs Changes +4,398

2015 Program Changes -11,441

America's Great Outdoors:

Cultural Resources Management - Inventory and Site Protection +742

Recreation Resources Management - Enhance Core Capability +900

Nat'l Monuments & Nat'l Conservation Areas - Enhance Core Capability +1,898

New Energy Frontier:

Oil & Gas Management - Leasing, Oversight and Environmental Studies +4,580

Oil & Gas Management - Rulemaking and Reforms +5,200

Oil & Gas Management - Decrease Base Funding for inspections/shift cost to fees -38,000

Oil & Gas Inspection and Enforcement - Funding for inspections/shift cost to fees - NON-ADD +38,000

Oil & Gas Inspection and Enforcement - New funding through fees - NON-ADD +10,000

Cadastral, Lands & Realty Management - Transmission Corridors +5,000

Applied Science:

Resource Management Planning - Applied Science - Enterprise Geospatial System +3,810

Wild Horse & Burro Management - Applied Science - Implementation of NAS Recommendations +2,800

Youth in the Great Outdoors:

Soil, Water & Air Management - Youth in the Great Outdoors +1,250

Land Acquisition - America's Great Outdoors:

Land Acquisition - Land Acquisition Projects +5,531

Western Oregon Resource Management:

O&C Forest Management - General Program Decrease -1,626

O&C Other Forest Resources - General Program Decrease -4,410

O&C Resource Management Planning - Anticipated Plan Completions -4,183

O&C Information & Data Systems - General Program Decrease -156

Other Program Changes:

Soil, Water & Air Management - Enhance Core Capability +909

Range Management - Grazing Permit Issuance/Shift Cost to Fees -4,799

Grazing Administration Management - Grazing Permit Issuance/Shift Cost to Fees - NON-ADD +4,799

Grazing Administration Management - Grazing Permit Issuance/New funding through fees - NON-ADD +1,701

Riparian Management - Enhance Core Capability +1,488

Alaska Conveyance - Streamline Conveyance Process -3,117

Resource Management Planning - High Priority Planning Efforts +1,208

Resource Protection & Law Enforcement - Enhance Core Capability +179

Abandoned Mine Lands - Red Devil Mine remediation +2,821

Deferred Maintenance & Capital Improvements - Enhance Core Capability +4,240

Annual Maintenance & Operations Costs - Enhance Core Capability +500

Challenge Cost Share - Enhance Core Capabilities +1,163

Administrative Support - Enhance Core Capabilities +454

Bureauwide Fixed Costs - WCF Indirect Cost Payments +47

O&C Operations and Annual Maintenance - General Program Decrease -590

Range Improvements - Change in available appropriation due to 2014 sequestration +720

Fiscal Year 2015 President's Budget Request, Direct Appropriations $1,093,042

BUREAU OF LAND MANAGEMENT BUDGET REQUEST SUMMARY

(dollars in thousands)
2015 Budget Justifications Bureau of Land Management

Page II - 2 Chapter II – Program and Legislative Changes 

Fixed Costs

Fixed Costs Increases (+$4,398,000/+0 FTE) – Requested fixed cost increases include costs 

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

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

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

America’s Great Outdoors

Cultural Resources: Inventories and Site Protection (+$742,000/0 FTE) – The 2015 budget 

request includes a program increase of $742,000 and 0 FTE. The increase will support BLM’s 

ongoing effort to complete and update regional cultural resource inventory overviews that are 

necessary to plan across broad landscapes and address large-scale infrastructure projects. 

The increase will also enable BLM to conduct up to an additional 40 localized on-the-ground 

inventory, site protection and stabilization projects, allowing BLM to better fulfill its statutory 

requirements for inventory and protection of heritage resources.

Recreation Resources Management: Enhance Core Capability (+$900,000/-6 FTE) - This 

request includes additional funds for inventory, planning, implementation and monitoring travel 

and transportation networks in sage-grouse habitats; and for visitor assessments that would 

help the BLM better measure social and economic impacts that benefit local communities. The 

additional increase would allow BLM to improve recreation areas and enhance current visitor 

services in the high demand and urban growth areas of Utah, California, Colorado, Arizona, 

Oregon, Nevada and Idaho by providing maps and other visitor information materials, improving 

visitor safety, for example, through enhanced law enforcement, and providing additional 

seasonal employees to conduct interpretation activities and perform other services aimed at 

improving visitor satisfaction.

National Monuments & National Conservation Areas: Enhance Core Capability 

(+$1,898,000/+0 FTE) – The requested increase strengthens the BLM’s management of the 40 

NMs and NCAs program and enhances the BLM’s ability to conserve, protect, and restore 

congressionally- and presidentially-designated areas. Specifically, funds will enhance 

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

increase law enforcement presence. With this increase in funding, the BLM will sustain 

compatible uses on National Monuments and NCAs such as grazing and recreation. The 

budget request enables the program to enhance management, collaborate with stakeholders, 

and improve awareness. This increase will be used to fund priority workloads in the field, 

including at BLM’s newest national monuments: Fort Ord in California, Rio Grande del Norte in 

New Mexico, and San Juan Islands in Washington. 

Landscape Acquisition Projects: Current Funding (+$5,531,000/0 FTE) – In 2014, the BLM 

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

land acquisition programs. The 2014 core program is $12.3 million and will fund ten of BLM’s 

highest priorities. The collaborative landscape planning component builds on efforts started in 

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

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

Forest Service collaborated extensively to develop a process to more effectively coordinate land 

acquisitions with government and local community partners to achieve the highest priority 

shared conservation goals. The 2014 request includes a total of $9.2 million for seven

collaborative landscape-planning projects. Within this total, BLM includes $4.6 million for the 
Bureau of Land Management 2015 Budget Justifications

Chapter II – Program and Legislative Changes Page II - 3

California Desert Southwest landscape and $4.6 million for projects that are part of the National 

Trails System landscape.

Landscape Acquisition Projects: Permanent Funding – The Department of the Interior 

proposes to permanently authorize annual mandatory funding, without further appropriation or 

fiscal year limitation for the Departments of the Interior and Agriculture Land and Water 

Conservation Fund (LWCF) programs beginning in fiscal year 2015. The LWCF mandatory 

proposal for BLM includes $64.4 million for Federal Land acquisition. Land acquisition funds 

are also used to secure access for the American public to their Federal lands. Concurrent with 

the America’s Great Outdoor initiative, these funds will invest in acquisitions to better meet 

recreation access needs by working with willing landowners to secure rights-of-way, easements 

or fee simple lands that provide access or consolidate Federal ownership so that public has 

unbroken spaces to recreate, hunt, and fish. BLM will focus $8.0 million in the permanent 

account towards projects to acquire access for sportsmen/recreation.

Powering Our Future

Oil and Gas: Rulemaking and Reforms (+$5,200,000/+7 FTE) – The 2015 budget proposes 

an increase of $5.2 million to provide key staffing, training, and other resources needed to 

continue work on regulations and policies to strengthen operation guidance for 23,000 scattered 

producing leases. This increase in funding will improve BLM’s capacity to carefully assess 

regulatory options, complete rulemaking processes, issue clear internal guidance to BLM field 

offices, and conduct appropriate training relating to these new rules and policies. 

Oil and Gas: Leasing, Oversight and Environmental Studies (+$4,580,000/+43 FTE) – The 

BLM requests an increase of $4.6 million to allow the Bureau to strengthen the leasing program 

through implementation of leasing reforms and to effectively oversee energy permitting and 

development activities. This is particularly important given the larger onshore well inventories 

with more sophisticated operations that include complicated completions for the newer 

horizontal drilling and hydraulic fracturing operations. In addition, $1.0 million of this request will 

address large, regional-scale analysis and studies, including environmental impact statements 

for conventional energy issues. These regional-scale studies will assist the BLM in development 

of Master Leasing Plans for conventional energy. This increase will also allow the Bureau to fill 

vacant positions and expand staff in key locations with heavy workload.

Oil and Gas: Shift to Inspection Fees (-$38,000,000/-162 FTE) – The 2015 budget proposes 

shifting a significant share of the cost of oil and gas inspections to industry fees, for $38.0 

million in requested savings. The estimated collections generated from the proposed inspection 

fees will total $48.0 million, fully offsetting the proposed reduction in appropriated funding and 

providing for a net increase of $10.0 million in funds available for this critical BLM management 

responsibility.

Federal Oil and Gas Reforms – The 2015 budget includes a package of legislative reforms to 

bolster and backstop administrative actions being taken to reform management of Interior's 

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

taxpayers from the sale of these Federal resources and on improving transparency and 

oversight. Proposed statutory and administrative changes fall into three general categories: (1) 

advancing royalty reforms; (2) encouraging diligent development of oil and gas leases; and (3) 

improving revenue collection processes. Collectively, these reforms will generate roughly $2.5 

billion in net revenue to the Treasury over 10 years, of which an estimated $1.7 billion will result 
2015 Budget Justifications Bureau of Land Management

Page II - 4 Chapter II – Program and Legislative Changes 

from statutory changes. 

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

under the Energy Policy Act of 2005 and to provide BLM with greater flexibility in locating these

offices where they can be most effective as industry permitting demands change over time. The 

2015 legislative proposal does not extend the Permit Processing Improvement Fund that was 

also established by Section 365. This permanent funding source is scheduled to expire at the 

end of FY 2015.

Engaging the Next Generation

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

2015 budget request includes a $1.3 million increase for the Secretary’s Youth Initiative in the 

Soil, Water & Air Management Program. Funding will allow the BLM to expand efforts to 

educate, engage, and employ young people. Special consideration will be given to those 

programs that provide youth from diverse backgrounds with hands-on learning in Science, 

Technology, Engineering, and Mathematics (STEM), and prepare them for careers in STEM 

fields. 

Applied Science

Wild Horse and Burro: Implementation of National Academy of Sciences (NAS) 

Recommendations (+$2,800,000/0 FTE) – The program increase of $2.8 million will be used 

to continue ongoing multi-year research studies focusing on the development of more effective 

and longer lasting fertility control agents, techniques for suppressing population growth, and 

determining their relative efficacy and effects. The BLM received the findings and 

recommendations of the NAS report in June 2013 and began implementation in FY 2014. Pen 

trials and field trials for such agents will likely begin in late FY 2014 and continue in FY 2015 in 

designated locations. The additional funding will also allow the BLM to initiate new research 

studies identified in the NAS report, such as identifying sentinel populations. The BLM will 

continue to develop a scientific foundation that will serve as the basis for an ecologically and 

financially sustainable Wild Horse and Burro Program.

Resource Management Planning: Enterprise Geospatial System (+3,810,000/0 FTE) – The 

BLM is requesting an increase of $3.8 million to expand the implementation of BLM’s enterprise 

geospatial system in 2015. This expansion will include the aggregation of BLM’s data across 

administrative units, the centralization of those data in an enterprise system that supports all 

programs and offices, and the delivery of data to both desktop and mobile computers across the 

agency. The enterprise geospatial system will support accurate and effective analysis and 

decision making across various priority landscape-scale initiatives, including the Greater SageGrouse Plan Implementation and Monitoring, Renewable Energy Development, Rapid 

Ecoregional Assessments, Climate Change Adaptation, and Regional Mitigation. The BLM’s 

enterprise geographic information system is integrated with Interior’s growing enterprise GIS 

capabilities and serves as a critical component of the Department’s corporate enterprise GIS 

strategy.

Rangeland Management

Rangeland Management: Grazing Permit Issuance/Shift Cost to Fees (-$4,799,000/-35 

FTE) – The budget proposes to shift a portion of the costs of issuing and managing grazing 
Bureau of Land Management 2015 Budget Justifications

Chapter II – Program and Legislative Changes Page II - 5

permits from appropriated funds to fees. The reduction of $4.8 million in the request for 

appropriations combined with the estimated $6.5 million in fee collections from a new grazing 

administration fee will result in a net increase of $1.7 million in funding resources available to 

address the grazing permit backlog. 

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 2015, and that it will assist the BLM in processing pending applications for 

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

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

cost recovery fee after the pilot expires. 

Western Oregon

O&C: Western Oregon Transportation and Facilities Maintenance (-$590,000/-4 FTE) – In 

2015, the Western Oregon Operations and Annual Maintenance Program will slightly reduce 

program capacity and outputs. The BLM will continue to emphasize maintenance on highpriority facilities, particularly those that have the greatest public exposure and use.

O&C: Forest Management (-$1,626,000/0 FTE) – A decrease in Western Oregon Forest 

Management assumes funding from two mandatory appropriations supporting timber and forest 

health. Total funding from all three funding sources will ensure timber sales are sustained at a 

level comparable with 2012 and 2013 levels. In 2014, the BLM expects increased salvage 

timber sales resulting from 2013 southern Oregon fires that will temporarily increase the volume 

offered in that year by 20-25 million board feet. 

O&C: Other Forest Resource Management (-$4,410,000/-24 FTE) – A decrease of $4.4 

million will reduce a range of activities, including inventory and monitoring, rangeland health 

assessments and restoration projects, and activities in support of recreation. Additional cost 

savings are expected by primarily thinning stands less than 80 years old, where less predisturbance surveys are needed.

O&C: Resource Management Planning (-$4,183,000 /-10 FTE) – The BLM plans to complete 

the six revised RMPs in June 2015. As final environmental impact statements are released and 

decisions are signed, the program’s emphasis will be to meet the completion schedule and 

supporting plan implementation.

O&C: Western Oregon Information Systems Operation and Maintenance (-$156,000/-2 

FTE) – The BLM is reducing funding for this program as the Department and its bureaus 

continue to implement plans associated with the DOI IT Transformation (ITT) initiative as 

outlined in Secretarial Order 3309. The BLM is relying on efficiency gains to reduce the impact 

of the reduced funding. 

Enhancing Core Capability

Soil, Water and Air: Enhance Core Capability (+909,000/0 FTE) – The 2015 budget request 

includes a program increase of $909,000. The additional funds will be used to support Colorado 

River Basin Salinity Program efforts by reducing salinity and sediment loading into the 
2015 Budget Justifications Bureau of Land Management

Page II - 6 Chapter II – Program and Legislative Changes 

international river basin; increase regional air resource monitoring and modeling efforts, 

specifically designed to share data across Federal agencies and support regional energy 

development; enhance the development of Ecological Site Descriptions in range lands and pilot 

areas for forestry, riparian and wetlands; and increase water quantity compliance monitoring 

and reporting to protect Federal reserve water rights. 

Riparian Management: Enhance Core Capability (+$1,488,000/+2 FTE) – The 2015 budget 

request includes a $1.5 million increase to strengthen BLM’s core capability to pursue a 

landscape approach to managing BLM vegetation resources, including inventorying, assessing, 

monitoring and managing over 150,000 miles of riparian areas and nearly 13 million acres of 

wetlands. Increased funding will be used to conduct additional assessments and monitoring to 

identify and prioritize management and restoration efforts and to support BLM management 

decisions. Currently, the need for assessment and monitoring data exceeds what has been 

possible with previous funding levels. In addition, the increased funding will improve tracking of 

drought conditions and improve the quality and quantity of water for wildlife in response to 

recent excessive drought over the past several years.

Cadastral, Lands and Realty: Transmission Corridors (+$5,000,000/0 FTE) – The requested 

funding would position the BLM to strategically plan for the long term increased demand and 

updates to the electric grid throughout the West with an improved and updated assessment 

process for the development and siting of energy corridors and rights-of-way (ROWs). Strategic 

planning would take into consideration renewable energy development including wind, solar, 

geothermal and hydropower. Planning activities would include revising land use plans in 

coordination with Federal, State, local and tribal stakeholders; revising energy corridors; 

developing landscape-level mitigation and best management practices; and synchronizing BLM 

and U.S. Forest Service land use/management plans with transmission planning conducted by 

the Western Electricity Coordinating Council.

Resource Management Planning: High Priority Planning Efforts (+$1,208,000 /+3 FTE) –

The BLM is requesting an increase of $1.2 million to support high-priority planning efforts, 

including the initiation of several new plan revisions in 2015, 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. Planning efforts will be in support of 

transmission infrastructure, renewable energy development, oil and gas development, and 

greater sage-grouse conservation.

Resource Protection and Law Enforcement: Enhance Core Capability (+$179,000/+2 FTE)

– The increase funds two Law Enforcement positions enhance BLM’s core capability to perform 

ongoing high priority work related to visitor safety and protection, marijuana eradication, 

Southwest Border operations, and archaeological resource protection.

Abandoned Mine Lands: Red Devil Mine Remediation (+$2,821,000/0 FTE) – The proposed 

increase for FY 2015 would be used for developing and implementing a Remedial 

Design/Remedial Action (RD/RA), including a field scale feasibility test of tailings solidification at 

the Red Devil Mine.

Deferred Maintenance: Enhance Core Capability (+$4,240,000 /0 FTE) – The requested 

increase will support additional facility repair projects that otherwise would not have been 

funded. Priorities will be identified using the Department’s capital investment guidelines. The 
Bureau of Land Management 2015 Budget Justifications

Chapter II – Program and Legislative Changes Page II - 7

projects include sustainability upgrades, radio infrastructure, and bridge, dam, and facilities 

repairs on critical assets and will slow the growth rate of the BLM’s deferred maintenance 

backlog, which exceeds $600 million. The request restores the Deferred Maintenance and 

Capital Improvements Program to roughly 2012 capacity levels, allowing BLM to make better 

progress in addressing its maintenance backlog.

Annual Maintenance: Enhance Core Capability (+500,000 /+4 FTE) – The increase will fund 

additional preventive maintenance on constructed assets supporting administrative, 

recreational, and infrastructure needs, with an emphasis in areas under greatest pressure from 

community growth.

Challenge Cost Share: Enhance Core Capability (+$1,163,000/+1 FTE) – The additional $1.2 

million program increase in Challenge Cost Share funds will be a boon to the American public, 

as the BLM will use those funds as seed money to generate an estimated additional $2.9 million 

in partner matching funds. The additional funding will be spent on a variety of activities and 

projects including: priority habitat restoration projects benefiting critical species across more 

than twelve State Offices; inventory and monitoring activities that support BLM’s wildlife and 

cultural programs; projects in support of BLM’s recreation mission; environmental education 

activities and public outreach projects pertaining to off-road vehicles. Many of these activities 

will occur in NLCS units and many will engage and support BLM’s youth programs to encourage 

interaction and understanding of the natural environment, while creating opportunities to explore 

and enjoy America’s Great Outdoors.

Administrative Support: Enhance Core Capability (+$454,000/0 FTE) – The increased 

funding supports increased costs associated with operating the BLM’s management and

support infrastructure, continuous improvements to internal controls and compliance to support 

mission assurance and accountability, and supports human capital planning and workforce 

planning.

Other Program Changes

Alaska Conveyance: Streamline Conveyance Process (-$3,117,000/0 FTE) – The BLM is 

reducing base funding for the Alaska Conveyance and Lands program to reflect expected 

achievements resulting from a significant increase in funding provided in 2014 and efficiencies 

created through recent implementation of more efficient cadastral survey methods, as well as 

previous streamlining improvements to the conveyance process. The 2015 request level plots a 

course for completing all surveys and land transfers in ten years.

Bureau-wide Fixed Costs: Office of Indirect Costs Services (+$47,000/0 FTE) – This 

proposed increase will pay the Department’s Office of Indirect Cost Services for its review of 

BLM’s indirect cost rate proposals. The request represents a base transfer of $23,400 from the 

Departmental Operations appropriation and an increase $23,600 based on increased workload 

and backlog resolution.

Range Improvements: (+$720,000/0 FTE) – The 2015 budget request for the Range 

Improvement Account is $10,000,000, which reflects an increase in available appropriation due 

to 2014 sequestration.
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Page II - 8 Chapter II – Program and Legislative Changes 

Permanent Reprogrammings and Internal Transfers

Cadastral, Lands, and Realty Management Consolidation [+$45,658/+379 FTE] – In 2015, 

the BLM proposes to consolidate the Cadastral Survey program and the Lands & Realty 

Management program. These activities include cadastral survey services, rights-of-way, 

permits, leases, land sales, and land exchanges. This consolidation will allow for better 

management and more flexibility of these activities, which directly affect the quality of life for 

communities near BLM-administered public lands.

Other Legislative Proposals

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

congressionally-chartered BLM Foundation. This foundation is an opportunity to leverage 

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

BLM mission, and improve messaging. 

Mining Law – The 2015 budget includes a legislative proposal to reform hardrock mining by 

instituting a leasing process under the Mineral Leasing Act of 1920 (MLA) for certain minerals 

(gold, silver, lead, zinc, copper, uranium, and molybdenum). Half of the receipts will be 

distributed to the State where the lease is located and half would be deposited to the Treasury’s 

General Fund. The proposal also increases annual maintenance fees and eliminates the fee 

exemption for miners holding 10 or fewer mining claims. 

Federal Land Transaction Facilitation Act (FLTFA) – The 2015 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.

Reclamation Fee – To provide additional resources for the reclamation of abandoned hardrock 

mines, the 2015 budget proposes a new AML fee on hardrock production. Just as the coal 

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

hardrock mining industry responsible for the remediation of abandoned hardrock mines. The 

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

private lands. The proposed AML fee on the production of hardrock minerals will be charged on 

the volume of material displaced after January 1, 2015. The receipts would be split between 

Federal and non-Federal lands. The Secretary will disperse the share of non-Federal funds to 

each State and Tribe based on need. Each State and Tribe will select its own priority projects 

using established national criteria. The proposed hardrock AML fee and reclamation program 

will operate in parallel with the coal AML reclamation program as part of a larger effort to ensure 

the Nation’s most dangerous abandoned coal and hardrock AML sites are addressed by the 

industries that created the problems.

Recreation Fees Mandatory Appropriation – The 2015 budget proposes legislation to 

permanently authorize the Federal Lands Recreation Enhancement Act, which will expire in 

December 2015. In addition, the Department will propose a general provision in the 2015 

budget request to amend appropriations language to extend the authority through FY 2016.

Reauthorization of Secure Rural Schools payments – In 2012, under PL 112-141, the 

Secure Rural Schools Act was reauthorized for one year (2012). The payments made to 
Bureau of Land Management 2015 Budget Justifications

Chapter II – Program and Legislative Changes Page II - 9

counties in 2013 (for 2012) again used a formula based on acreage of Federal land, previous 

payments, and per capita personal income. In October 2013, Congress enacted Public Law 

113-40, which extends payments for one year to the O&C Grant Lands and the Coos Bay 

Wagon Road counties through fiscal year 2013 (with the payment to be made 2014). The 

President’s budget includes a legislative proposal to reauthorize the Secure Rural Schools 

(SRS) Act for five years with funding through mandatory U.S. Forest Service appropriations. 

This SRS proposal revises the allocation split between the three portions of the program from 

the current authority, emphasizing enhancement of forest ecosystems, restoration and 

improvement of land health and water quality, and the increase of economic activity. 

If no proposal were enacted, payments to O&C and CBWR counties in 2015 would be under the 

1937 and 1939 statutes. For more information on this proposal, see the U.S. Forest Service 

2015 Budget Justification.
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Page II - 10 Chapter II – Program and Legislative Changes 

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Performance Overview 

 

Bureau of Land Management 2015 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 Resource Development,

 Climate Change Adaptation,

 Youth Stewardship of Natural and Cultural Resources, and

 Oil & Gas Resources Management.

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

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

Endangered Species Management; Wild Horse and Burro Management; Recreation 

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

Gas Management; and Renewable Energy Management.

Renewable Energy Resource Development – By September 30, 2015, increase approved 

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

Department of the Interior managed lands, while ensuring full environmental review, to at least 

16,500 Megawatts since 2009.

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

Powering Our Future and Responsible Use of Our Resources 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 2015 President’s Budget requests $29.1 million for Renewable Energy 

Management, which maintains funding at the 2014 enacted level plus an increase of $171,000 

for fixed costs.

Implementation Strategy: In 2015, the BLM will continue work on implementation actions

resulting from the solar energy development Programmatic Environmental Impact Statement. 

The Record of Decision on the Solar PEIS includes 17 solar energy zones, containing 

approximately 285,000 acres potentially available for solar energy development. 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.

In 2015, a wind energy constraint analysis methodology will be utilized in priority wind areas on 

public lands to streamline the environmental review of site-specific wind projects. It will also 
2015 Budget Justifications Bureau of Land Management

Page III - 2 Chapter III – Performance Overview 

broaden the analysis of additional planned transmission development. This new methodology 

was developed in 2014 to update the previous analysis in Wyoming done under the Wind 

Energy Programmatic EIS completed in 2005. The new analysis is being used to address a 

greater level of wind energy development in Wyoming. 

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

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

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

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

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

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

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

full environmental review.” Through the end of 2013, the BLM issued decisions on solar, wind, 

and geothermal energy development project proposals with a combined capacity of more than 

13,937 megawatts under the priority goal.

5 Projects approved in 2014 and 2015 are projected to 

provide sufficient additional capacity to reach the goal of 16,316 megawatts of capacity.

6

Climate Change Adaptation – By September 30, 2015, the Department of the Interior will 

demonstrate maturing implementation of climate change adaptation, as scored when 

implementing strategies provided in its Strategic Sustainability Performance Plan. 

BLM Contribution: The BLM will work through five broad strategies developed by DOI to 

demonstrate implementation of climate change adaptation. These five broad strategies are: 1) 

mainstream and integrate climate change adaptation into both agency-wide and regional 

planning efforts; 2) ensure agency principals demonstrate commitment to adaptation efforts 

through internal communications and policies; 3) ensure workforce protocols and policies reflect 

projected human health and safety impacts of climate change; 4) design and construct new or 

modify/manage existing agency facilities and/or infrastructure with consideration for the potential 

impacts of projected climate change; and 5) update agency external programs and policies to 

plan for and address the impacts of climate change. Each of these five strategies will have a 

BLM component that will contribute to the Department’s overall goal of addressing the impacts 

of climate change. The 2015 BLM budget request includes $15.0 million for climate change 

adaptation.

Implementation Strategy: In 2014 and 2015, the BLM will identify priority focal areas for funding 

to restore or enhance landscape resiliency as one of many efforts to integrate climate change 

adaptation into planning efforts. The Bureau will establish a national science committee for the 

BLM as part of its ongoing management commitment. The BLM will survey commuters and 

coordinate telework to help reduce the impact of employees travel on the environment. 

Similarly, the BLM will review design criteria for climate change considerations in deferred 

maintenance or capital improvement projects over $1 million to ensure they incorporate best 

available sustainable measures, reduce water use to help mitigate possible water shortages, 

install photovoltaic cells where possible to help meets energy needs, and use inspections to 

identify potential energy savings in facilities. Each of these measures helps to alleviate 

greenhouse gas emissions. Finally, in working with our public land users, the BLM will develop 

a program to help visitors understand how climate change may affect their ability to use and 

enjoy the public lands. 

 

5

The priority goal includes only projects approved since 2009

6

Total projects approved, including those prior to 2009
Bureau of Land Management 2015 Budget Justifications

Chapter III – Performance Overview Page III - 3

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 Stewardship of Natural and Cultural Resources – By September 30, 2015, the 

Department of the Interior will provide 40,000 work and training opportunities over two fiscal 

years (FY2014 and FY 2015) for individuals age 15 to 25 to support the mission of the 

Department.

BLM Contribution: The BLM has incorporated this priority goal into its America’s 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 young people ages 15 to 25 through various student employment 

programs, the 21st Century Conservation Service Corps and other youth partnership 

organizations. The BLM is also emphasizing recruiting youth from diverse backgrounds. 

Programs for school age youth such as Hands on the Land and conservation corps and 

internship programs for high school and older youth expose young people to natural and cultural 

resources and to career pathways in those fields. The 2015 BLM budget request includes $4.8

million for the America’s Great Outdoors initiative, which includes an additional $1.25 million 

above the 2014 enacted level. This additional funding will provide youth opportunities assisting 

the BLM with trail construction and maintenance, habitat restoration, inventory and monitoring in 

support of a wide range of programs, such as archaeological resources; wilderness 

characteristics; soil, water, and air resources as well as climate change impacts.

Implementation Strategy: In 2015, BLM will continue to pursue opportunities to facilitate, 

develop, and sustain partnership activities to support BLM’s mission and will continue pursuing 

collaborative opportunities to educate, engage, and employ youth, particularly throughout the 

National Landscape Conservation System. 

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

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

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

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

overcome barriers to the achievement of the priority goal.

Oil and Gas Resources Management – By September 30, 2015, 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. 

BLM Contribution: The inspection of high-risk-producing oil and gas cases ensures that 

hydrocarbon production on federally managed lands is properly accounted for and results in 

accurate royalty payments to the public and Indian owners of the minerals. Oil and gas 

production on Federally-supervised lands represents a significant part of the Nation’s 

hydrocarbon production. Operating regulations at 43 CFR 3161.3 (a) require the BLM to inspect, 

at least once a year, all leases which produce high volumes of oil or natural gas and those 

leases that have a history of non-compliance. By focusing on high-risk-producing cases, rather 

than randomly selecting producing cases for inspection, the BLM’s resources are more 
2015 Budget Justifications Bureau of Land Management

Page III - 4 Chapter III – Performance Overview 

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 2015 

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 inspection fees will total 

$48.0 million. This will allow for a reduction of $38.0 million in requested appropriations and will 

provide an additional $10.0 million in resources for BLM inspections and oversight. The 2015 

budget also proposes a separate programmatic increase to strengthen BLM’s oversight and 

permitting functions and enable the BLM to implement its leasing reforms.

Implementation Strategy: High-risk cases are determined by seven risk factors, four generated 

by the BLM and three derived from the Office of Natural Resources Revenue risk model. The 

four BLM factors are production rating, number of missing Oil and Gas Operations Reports 

(OGOR), non-compliance rating, and last production inspection date rating. The Field Offices 

inspect the cases throughout the year, which are then entered into the Automated Fluid 

Minerals Support System (AFMSS). The Washington Office then runs reports from AFMSS 

showing the number of high-risk-production inspections completed. The number of high-riskproduction cases is determined by the individual Field Offices, based on the Bureau’s riskbased inspection strategy. The milestones for 2014 and 2015 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, 5, and 9 

which cover how oil and gas is measured and stored in a secure facility to prevent theft and 

mishandling of production, waste, and beneficial use; 2) Evaluating and adjusting onshore 

royalty rates; and 3) Reinstating training for managers on oil and gas operations. Progress in 

these areas is reported and reviewed throughout the year by the Deputy Secretary’s Principals 

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

measures to overcome barriers to the achievement of the priority goal. 

The BLM’s Contribution to the Department’s Strategic Plan

The FY 2014-2018 DOI Strategic Plan, in compliance with the principles of the GPRA 

Modernization Act of 2010, provides a collection of mission objectives, goals, strategies and 

corresponding metrics that provide an integrated and focused approach for tracking 

performance across a wide range of DOI programs. While the DOI Strategic Plan for 2014 –

2018 is the foundational structure for the description of program performance measurement and 

planning for the 2015 President’s Budget, further details for achieving the Strategic Plan’s goals 

are presented in the DOI Annual Performance Plan and Report (APP&R). Bureau-and programspecific plans for 2015 are fully consistent with the goals, outcomes, and measures described in 

the 2014-2018 version of the DOI Strategic Plan and related implementation information in the 

Annual Performance Plan and Report (APP&R).
Bureau of Land Management 2015 Budget Justifications

Chapter III – Performance Overview Page III - 5

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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Mission Area 1: Celebrating and Enhancing America's Great Outdoors

Goal 1: Protect America's Landscapes

Strategy 1: Improve land and water health 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

85%

131,976/154,976

85%

132,466/154,976

86%

133,055/155,274

86%

133,866/155,151

86%

133,000/154,976

85%

131,976/154,976

Contributing Programs: Land Resources; Wildlife and Fisheries Management; O&C Resources; Contributed Funds; Challenge Cost Share; and Other Subactivities

Percent of DOI acres that have achieved desired 

conditions where condition is known and as specified in 

management plans (SP)

C

59% 

149,206,024/ 

253M

63% 

155,970,340/ 

248M

66% 

163,558,379/ 

248M

63% 

155,210,537/ 

248M

63% 

156,000,000/

248M

64% 

157,500,000/ 

248M

Contributing programs: Land Resources; Wildlife Management; O&C Resources Management; Contributed Funds/Reimbursables; and Other Subactivities 

Percent of baseline acres infested with invasive plant 

species that are controlled (SP) C

1.21% 

433,905/ 

35,762,000

0.99% 

333,177/ 

35,762,000

0.57% 

204,667/ 

35,762,000

0.68%

246,710/

35,762,000

0.67%

240,000/

35,762,000

0.66%

235,000/

35,762,000

Contributing Programs: Land Resources; Burned Area Rehabilitation; O&C Resources Management; Challenge Cost Share; and Other Subactivities

Number of DOI riparian (stream/shoreline) miles restored 

to the condition specified in management plans (BUR) A 1,734 749 867 671 749 735

Contributing Programs: O&C Resources Management; Land Resources; Wildlife Management; Reimbursables; Challenge Cost Share and Contributed Funds; and Range 

Improvements

Number of DOI acres restored to the condition specified 

in management plans (BUR) A 1,136,759 848,477 556,457 502,787 500,000 500,000

Comment: In 2014, BLM will continue to prioritize its permit renewal activities, which will result in a decrease in the number of acres restored. Those projects initiated will 

address Habitat Restoration and Improvement. This funding will restore and improve key greater sage-grouse habitat for the benefit of sage-grouse populations

Contributing Programs: Land Resources; Wildlife Management; O&C Resources Management; Range Improvements; Forest Ecosystems; SNPLMA Conservation; Resource 

Management Planning; Forestry Pipeline Restoration; NM&NCA's; Other Reimbursables

Percent of surface waters (acres) managed by BLM that 

meet State (EPA-approved) water quality standards 

(BUR)

A

87% 

283,616/

324,628

87% 

283,616/

324,628

91% 

335,765/

371,060 

90% 

11,631,022/

12,923,358

90% 

11,680,022/

12,923,358

85% 

11,750,800/

12,998,000

Comment: In 2014, BLM included data from Alaska, which had been underreported in the past due to the challenges of calculating and assessing remote rivers and lakes. 

Improvements in inclusion and access to data from the National Hydrologic Database and GIS mapping have allowed for the incorporation of Alaska data at this time
2015 Budget Justifications Bureau of Land Management

Page III - 6 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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Contributing Programs: Land Resources; Wildlife Management; O&C Resources Management; Range Improvements; Forest Ecosystems; SNPLMA Conservation; Resource 

Management Planning; Forestry Pipeline Restoration; NM&NCA's; Other Reimbursables

Percent of surface waters (stream miles) managed by 

BLM that meet State (EPA-approved) water quality 

standards (BUR)

A

91% 

124,188/136,327

91%

124,188/136,327

89% 

103,700/116,937 

91% 

221,722/243,706

91% 

225,500/243,706

91% 

226,000/250,250

Percent of Wild Horse and Burro Herd Management 

Areas achieving appropriate management levels (BUR) A

41%

74/ 179

39%

69/179

40% 

72/179

26% 

47/179

25% 

45/179

15% 

27/179

Comment: In 2015, the program can no longer maintain the existing population levels on the range due principally to holding space limitations. As a result, the program will 

continue to decrease the number of animals removed from the range, resulting in an increase in on-the-range population. 

Percent of Resource Management Plans completed 

within four years of start (BUR) C

39% 

28/71

41% 

28/69

39% 

28/72 

39% 

29/75

35% 

30/85

31%

30/95

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. 

Percent of Resource Management Plan evaluations 

completed within 5 years (BUR) C

30%

40/136

41%

56/136

44% 

65/149

42%

66/157

45%

73/164

45% 

73/164

Percent of Resource Management Plans with 

Implementation Strategies (BUR) C

34%

47/136

36%

49/136

38%

56/149

37%

58/157

34%

55/164

34%

55/164

Percent of Resource Management Plans evaluated as 

making significant progress toward achieving riparian 

condition goals (BUR)

A

5.9%

8/136 18% 24/136 22% 33/149

22% 

34/157

28% 

44/160

28% 

44/160

Percent of public lands where Visual Resource 

Management data have been recorded in digital format 

for both inventory and management classes (BUR)

C

49%

124,744,373/

256M

71% 

177,427,913/

248M

76% 

187,663,813/

248M

80%

198,541,465/

248M

81%

200,237,220/

248M

81%

200,237,220/

248M

Percent of sites (acres) reclaimed or mitigated from the 

effects of degradation from past mining (BUR) A

71%

2,718/3,831

32%

3,046/9,262

51%

4,723/9,262

64%

8,834/13,747

12%

3,670/31,678

11%

3,853/33,700

Comments: For the near future (2014 thru 2018), the AML Program projects that more new AML sites will be identified than the program and its partners are capable of 

remediating. Note: Starting in 2013 the AML program revised its method of calculating the percent of acres reclaimed and/or mitigated. The new system more precisely 

represents field performance in restoring/reclaiming abandoned mine land. 

Percent of known contaminated sites remediated on 

BLM-managed land (BUR) C

23% 

63/ 272

34% 

92/ 272

39% 

108/ 272

46% 

126/ 272

49% 

131/269

49% 

131/269

Percent of physical and chemical hazards mitigated in 

appropriate time to ensure visitor or public safety (BUR) A

91%

1,518/ 1,676

92% 

740/800

91% 

9601/1,052

92% 

1,026/1,112

90% 

1,098/1,220

85% 

1,037/1,220

Number of incidents/investigations closed for natural, 

cultural, and heritage resources offenses (BUR) A

New Measure 

in 2011 4,744 4,450 6,330 6,646 6,646
Bureau of Land Management 2015 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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Number of natural, cultural, and heritage resource crimes 

detected that occur on BLM lands (BUR) A

New Measure 

in 2011 9,438 9,434 15,307 16,072 16,072

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, including States. 

Number of threatened and endangered species recovery 

activities implemented (SP) A

New

in 2011 1,328 1,921 1,844 1,550 1,580

Contributing Programs: Threatened and Endangered Species Management; O&C Wildlife Habitat Management, and NM&NCA's

Number of stream/shoreline miles of habitat restored or 

enhanced that directly support the conservation of 

Bureau species of management concern (BUR)

A 253 418 225 307 208 250

Contributing Programs: Fisheries; Wildlife Management; Threatened and Endangered Species Management; O&C Wildlife Management; and NM&NCA's 

Number of acres of habitat restored or enhanced that 

directly support the conservation of Bureau species of 

management concern (BUR) 

A 266,174 295,799 250,000 250,000 231,250 300,000

Contributing Programs: Wildlife; Fisheries; T&E Management; O&C Wildlife Management; and NM&NCA's
2015 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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Goal 2: Protect America’s Cultural and Heritage Resources

Strategy 1: Protect and maintain the Nation's most important historic areas and structures, archeological sites, and museum collections.

Percent of archaeological sites on DOI inventory in good 

condition (SP) C

84%

52,620/62,987

84% 

60,521/71,644

86% 

69,362/80,653

85% 

64,562/75,918

85% 

66,062/77,918

85% 

67,562/79,918

Percent of historic structures on DOI inventory in good 

condition (SP) C

49% 

192/390

48% 

193/400

48% 

197/410

52% 

217/421

52% 

219/421

52% 

220/420

Percent of collections on DOI inventory in good condition 

(SP) C 75% 106/141

83% 

118 / 142

83% 

120/144

86% 

123/ 143

86% 

122/142

86% 

124/145

Comment: The overall percentage is directly affected by the number of collections added to the inventory each year. 

Percent of paleontological localities in BLM inventory in 

good condition (BUR) C

98% 

24,926/25,436

95% 

26,643/27,230

99% 

26,376/26,621

98% 

19,259/19,609

98% 

19,837/20,197

98% 

22,432/20,802

Number of units of National Scenic and Historic Trail 

inventory completed to standards (BUR) C

New Measure 

in 2011 384 222 79% 106/ 469 units 52 50

Comment: In 2014, the target for National Scenic and Historic Trails will change from being calculated in number of miles to number of units, due to a change in policy. Mileage 

is now collected as a part of the inventory process, not as a basis for it. 

Number of units of National Scenic and Historic Trail 

monitoring completed to standards (BUR) C

New Measure 

in 2011 1,320 2,542 153% 718/ 469 units 155 units 150 units

Comment: In 2014, the target for National Scenic and Historic Trails will change from being calculated in number of miles to number of units, due to a change in policy. Mileage 

is now collected as a part of the inventory process, not as a basis for it. 

Percent of designated Wild and Scenic River miles 

achieving goals, objectives, and desired conditions in 

maintaining, protecting, and/or enhancing river-related 

values (BUR)

C

New Measure 

in 2011 94 % 2,512/2,681

 

88%

2,371/2,681

61%

1,505 / 2,450

 

65%

1,593/2,450

 

65%

1,593/2,450

Percent of acres of Wilderness areas under BLM 

management meeting their heritage resource objectives 

under the authorizing legislation (BUR)

A

New Measure 

in 2011

100% 8,736,691/ 

8,736,691 

100% 

8,736,691/ 

8,736,691 

95%

8,300,856/ 

8,736,691

Establish baseline Baseline 

established

Comment: In 2014, the target for wilderness will change from being calculated in number of acres to number of units, due to a change in the definition of the performance 

measure. Performance measure is now "Total number of BLM-managed wilderness units with stable or improving wilderness character trends.” Total number of wilderness units 

is 221.

Percent of designated Monuments and NCAs inventoried 

for the resources, objects, and values for which they 

were designated (BUR) 

New Measure in 2014

New 

Measure 

in 2014

New Measure in 

2014

New Measure in 

2014

Baseline to be 

Established

Baseline 

Established
Bureau of Land Management 2015 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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Goal 3: Provide Recreation and Visitor Experience

Strategy 1: Enhance the enjoyment and appreciation of our natural and cultural heritage by creating opportunities for play, enlightenment, and inspiration.

Percent of visitors satisfied with the quality of their 

experience (SP) A

94% 

94/ 100

95% 

95/ 100

94% 

94/100

96% 

96/100

96% 

96/100

96% 

96/100

Comment: Customer surveys have a variance of +/- 6%. 

Percent satisfaction among visitors served by facilitated 

programs (SP) A

98% 

98 / 100

90% 

90/ 100

97% 

97/100

94% 

94/100

95% 

95/100

94% 

94/100

Comment: The data for this measure is compiled using the BLM Visitor Survey report prepared by the University of Idaho. Customer surveys have a variance of +/- 6%. 

Percent of customers satisfied with the value for fee paid 

(BUR) A 79% 88% 70% 83% 83/100

75% 

75/100

74% 

74/100

Percent of recreation fee program receipts spent on fee

collection (BUR) A 3% 3% 3% 3% 3% 3%
2015 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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Mission Area 3: Powering Our Future and Responsible Use of the Nation's Resources 

Goal 1: Secure America's Energy Resources

Strategy 1: Ensure environmental compliance and the safety of energy development.

Percent of oil and gas acres reclaimed to appropriate 

final land condition (SP) A

25%

1,713/6,801

23%

2,327/10,062

23%

1,949/8,651

24%

1,661/6,992

21%

1,400/6,700

22%

1,800/6,900

Percent of producing fluid mineral cases that have a 

completed inspection during the year (SP) A New In 2011 36% 9,869/27,419

33% 

10,297/27,419

37%

10,204/27,719

29%

8,400/29,500

32%

9,500/29,600

Percent of required coal inspection and enforcement 

reviews completed (BUR) A

99.21% 

2,777/2,799

93%

2,513/2,700

101% 

2,731/2,700

95%

2,467/2,600

100%

2,600/2,600

100%

2,650/2,650

Percent of Federal oil and gas lease assignments 

processed (BUR) A

New Measure 

in 2011

90%

27,548/30,611

90%

12,706/14,087

80%

12,140/15,361

80%

11,200/14,000

82% 

11,500/14,000

Strategy 2: Develop Renewable Energy Potential

Number of megawatts of approved capacity authorized 

on public land and the Outer Continental Shelf (OCS) for 

renewable energy development while ensuring full 

environmental review (SP)

C 2,532 8,005 9,844 15,767 17,409 18,000

Comment: The Strategic Plan measure includes all MW of capacity [2,448] on Federal lands, which were authorized prior to the development of the Secretary’s Priority Goal. 

Strategy 3: Manage Conventional Energy Development

Percent of coal lease applications processed (SP) A

5% 

2/39

7% 

3/42

18% 

8/45

15% 

6/40

10% 

4/42

10% 

4/42

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

54%

5,237/9,621

56%

5,200/9,308

61% 

5,861/9,549

60% 

4,892/8,180

55% 

4,390/8,000

57% 

4,550/8,046

Number of coal post-leasing actions approved for energy 

minerals (BUR) A 320 345 375 325 335 335

Percent of pending cases of right-of-way permits and 

grant applications in backlog status (BUR) A

53%

1,558/2,965

92%

1,872/2,041 

47%

1,380/2,965

47%

1,402/3,000

48%

1,446/2,989

49%

1,518/3,110

Percent of oil and gas Reservoir Management 

Agreements processed (BUR) A

122%

4,086/3,358

90%

2,944/3,265

82%

3,605/4,385

86%

3,443/4,000

85%

3,300/3,900

85%

3,400/4,000
Bureau of Land Management 2015 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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Goal 2: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 1: Manage Timber and Forest Products Resources

Percent of allowable sale quantity timber offered for sale 

consistent with applicable resource management plans 

(SP)

A

86% 

174/203

70% 

143/203

85% 

172/203

80% 

162/203

73% 

149/203

80% 

162/203

Comment: Modifications to existing timber sale contracts resulted in increased volume offered in 2012. 

Volume of wood products offered consistent with 

applicable management plans (Public Domain & O&C) 

(SP)

A 296 240 242 243 256 228

Contributing Programs: O&C Forest Management; Forestry Management

Administrative cost per thousand board feet of timber 

offered for sale (BUR) A $182 $217 $194 $207 $200 $200 

Volume of wood products offered (biomass for energy) 

consistent with applicable management plans (BUR) A 355,000 119,000 157,751 137,347 100,000 100,000 

Contributing Programs: Forestry Management; Hazardous fuels; O&C Resources Management; and Forest Ecosystem Health 

Percent of forestry improvements (acres) completed as 

planned (BUR) A

89%

22,833/25,700

67% 

17,301/25,700

62% 

15,906/25,700

100% 

16,050/16,000

94% 

15,000/16,000

94% 

15,000/16,000

Strategy 2: Provide for Sustainable Forage and Grazing

Percent of grazing permits and leases processed as 

planned consistent with applicable resource management 

plans (SP)

A

30%

1,933/6,484

36% 

1,945/5,383

22% 

1,491/6,685

21% 

1,344/6,300

28% 

1,785/6,300

25% 

1,695/6,900

Contributing Programs: Range Land Management; National Monuments and National Conservation Areas; O&C Range Management

Number of grazing administration actions conducted

(BUR) A

New Measure in 

2011

96% 

30,006/31,102

108% 

34,200/31,617

115% 

35,298/30,752

96% 

27,000/28,000

96% 

26,400/28,000

Contributing Programs: Range Land Management; National Monuments and National Conservation Areas; O&C Range Management

Strategy 3: Manage Non-Energy Mineral Development

Percent of non-energy mineral exploration and 

development requests processed (SP) A

New

in 2011

5% 

27/572

11% 

73/645

25% 

114/475

10% 

50/475

13% 

60/475

Number of mined acres reclaimed to appropriate land 

condition and water quality standards (SP) A 3,556 1,317 1,408 2,279 1,400 1,300

Percent of Mineral Material permits and contracts 

processed for non-energy minerals (BUR) A

34%

664/1,925

52% 

1,225/2,340

37% 

740/2,000

21% 

503/2,028

35% 

700/2,000

37%

710/1,900

Percent of Reclamation Bond Adequacy (BUR) A

99% 

1,676,987,850/

1,686,971,962

105% 

2,027,497,506/

1,937,402,788

98% 

2,363,046,865/

2,404,511,715

99%

2,543,000,000/ 

2,563,000,000

98%

1,960,000,000/

2,000,000,000

98%

1,960,000,000/

2,000,000,000
2015 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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Average time for processing Plans of Operation for 

locatable minerals (BUR) A 17 mo 22 mo 14 mo 14 mo 14 mo 14 mo 

Percent of Notices and Plans of Operations inspected 

(BUR) A

66% 

2,049/3,090

56%

1,734/3,092

44% 

1,338/3,039

47% 

1,393/2,954

50% 

1,525/3,050

50% 

1,525/3,050

Percent of Mineral Material trespass actions resolved for 

non-energy minerals (BUR) A

28% 

44/156

31% 

40/127

23% 

42/180

13% 

15/117

25% 

45/180

33% 

47/135

Number of mining notices processed (BUR) A 487 603 525 516 520 500

Percent of time the Crude Helium Enrichment Unit 

(CHEU) was operating during the fiscal year (BUR) A

100% 

356/356

95% 

345/365

105% 

357/340

105% 

356/ 340

100% 

340/ 340

100% 

340/340

Comment: The percent equals 100 times the number of actual days (DA) the CHEU was operating during the fiscal year, divided by the planned days of operation of the CHEU 

(DP). The number of days the CHEU operates varies from year to year. Natural events such as fires, floods, high winds and other unforeseen events will cause the Unit to be 

shut down. The CHEU is shut down from 5 to 7 days each year for routine maintenance.

Number of Mineral Material inspections and production 

verifications (BUR) A 3,112 3,319 3,076 2,969 3,100 3,100

Number of Non-energy Solid Mineral inspections and 

production verifications (BUR) A 1,220 1,391 1,817 1,757 1,800 1,800
Bureau of Land Management 2015 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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Mission Area 6: Building a Landscape Level Understanding of Our Resources 

Goal 1: Provide Shared Landscape-Level Management and Planning Tools

Strategy 1: Ensure the use of landscape level capabilities and mitigation actions

Number of landscape-scale mitigation actions taken that 

directly expand the conservation of natural resources 

(SP)

A New in 2014 New in 2014 New in 2014 New in 2014 Baseline to be 

Established

Baseline 

Established
2015 Budget Justifications Bureau of Land Management

Page III - 14 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

2010 Actual 2011 Actual 2012 Actual 2013 Actual 2014 

Enacted

2015 

President's 

Budget

Management Initiatives: Building a 21st Century Department of the Interior 

Goal 4: Improving Acquisition & Real Property Management

Percent of buildings maintained in adequate condition, 

determined by Facilities Condition Index (FCI) < 0.15 

(BUR)

C New in 2012 90%

4,480/4,949

92% 

4,546/4,971

90% 

3,978/4,323

92% 

3,975/4,327

92% 

3,975/4,327

Percent of sites maintained in adequate condition, 

determined by Facilities Condition Index (FCI) < 0.15 

(BUR)

C New in 2012 89% 

3,064/3,431

89% 

3,079/3,464

88% 

3,128/3,490

90% 

3,124/3,486

90% 

3,124/3,486

Number of lane miles of roads maintained in adequate 

condition (BUR) A 35,303 32,059 34,376 33,765 33,700 33,700

Number of Deferred Maintenance and Construction 

projects completed (BUR) A

New Measure 

in 2011 116 311 70 310 300

Increase the percentage of BLM organizational units 

rated in good safety, health, and environmental condition 

(CASHE) (BUR)

A

91% 

111/120

93% 

111/120

96% 

115/120

93% 

111/120

89% 

117/120

89% 

117/120

Comment: The Deferred Maintenance and Capital Improvements Program is project specific and planned performance varies significantly from year to year depending on the 

scope of planned projects.

Number of public land title records posted on the Internet 

to assist title, survey, historical, and genealogical 

research and retrieval (BUR)

A 531,813 228,845 250,844 235,590 229,500 164,285

Percent of survey projects of Federal and Indian Trust 

lands that are funded (BUR)

31% 

401/1,304

22% 

338/1,570 

20% 

317/1,570

14% 

258/1,862

9% 

143/1,570

8.5% 

135/1,575

Percent of cadastral surveys approved within 18 months 

of the funding date (BUR) A

49% 

301/611

78% 

320/409

82% 

335/409

69% 

388/559

55%

225/409

52% 

214/410

Percent of land patented to the State and Alaskan Native 

Corporations as required by statute (BUR) A

58%

86,980,542/

150,149,007

59%

88,341,737/

150,149,836

63%

94,244,957/

150,149,836

65%

97,000,457/

150,149,836

67%

101,244,957/

150,149,836

69%

103,244,957/

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 2014 will affect performance shown in 2016. The denominator in this measure is 

subject to change as estimates of entitlement acreages are replaced with actual sizes following cadastral survey. 

Number of acres conveyed out of public ownership 

through sale or exchange (BUR) A 70,432 36,910 20,491 114,924 40,947 38,899

Number of acres acquired to consolidate ownership and 

improve management (BUR) A

71%

8.404/11,849

4%

454/11,849

1% 

111/ 11,849

62% 

7,371/ 11,849

64% 

7,591/ 11,849

50% 

12,359/24,696
Crosscutting Programs 

 

Bureau of Land Management 2015 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 1

CROSSCUTTING PROGRAMS

The BLM has a number of programs that are funded through multiple sources. The National 

Landscape Conservation System (NLCS) is one of the primary examples in which this is the 

case and its components are described below. Its components are described below. In 

addition, the BLM has partnership, education, and volunteer programs that are supported by a 

number of funding sources. Service First and BLM’s partnership program provide tools to BLM 

managers to use funding more efficiently and effectively 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 BLM land is recognized for outstanding 

conservation values and designated for special management by Acts of Congress or 

Presidential Proclamations. 

The BLM manages these special areas to maintain and enhance their conservation values and 

allow for multiple, sustainable uses of the land. The BLM’s goal is to conserve, protect, and 

restore these important landscapes and their outstanding cultural, ecological, and scientific 

values. These areas range from broad Alaskan tundra to red-rock deserts and from deep river 

canyons to rugged ocean coastlines and include some of America’s finest natural and cultural 

treasures, and recreational opportunities. 

The NLCS includes the following unit designations. Each of these unit designations and 

information about each unit type can be found in the following sections:

 National Monuments and National Conservation Areas;

 Wilderness/Wilderness Study Areas;

 National Wild and Scenic Rivers; and

 National Scenic and Historic Trails. 

Natural and Cultural Benefits – The diverse ecosystems designated in the NLCS protect a 

myriad of endangered species and habitats, and the diverse ecosystems within the System help 

ensure that the Nation’s extraordinary biodiversity will be sustained for present and future 

generations to enjoy. As landscape pressures associated with drought, climate change and the 

effects of landscape stressors on species habitat and migration corridors continue to be of 

concern, NLCS lands offer opportunities for scientists to conduct important research and data 

collection. Additionally, the NLCS contains over 30 percent of all special-status animal species 

found on BLM lands. 

Also preserved within the NLCS are priceless artifacts from the history of the Nation, including 

explorer William Clark’s 1806 signature on a sandstone bluff in Montana; this signature is the 

only on-site physical evidence of the Lewis and Clark expedition. Further back in history, 

dinosaurs and other prehistoric species left myriad evidence of their passing through NLCS 

lands, and many of their fossils are now displayed in visitor centers and cooperating museums.

Recreation Benefits – As wide-open spaces and opportunities for natural exploration continue 

to dwindle, the NLCS conserves over 27 million acres of rugged landscapes for the public to 

explore and enjoy and hosts more than one-fourth of all recreation on BLM lands. These diverse 
2015 Budget Justifications Bureau of Land Management

Page IV - 2 Chapter IV – Crosscutting Programs

lands provide activities for recreationists of all kinds, from white-water rafters and rock climbers 

to hunters and anglers, hikers and skiers to boaters and off-highway vehicle riders. The NLCS 

manages units that include over 2,700 recreation sites and 22 visitor centers, and serves 

approximately 14 million visitors annually. Because of the high rate of visitation, the 

communities surrounding the NLCS designated units reap significant economic benefits through 

tourism services. In southeast Nevada, Red Rock Canyon National Conservation Area alone

serves over one million visitors each year. These visitors generate more than $1.7 million in 

recreation fees that are reinvested in the unit and directly contribute to the regional tourist 

economy, benefitting local communities and businesses located there.

The BLM, in cooperation with local communities, supports the creation of recreation and visitor 

facilities in nearby gateway communities rather than building extensive facilities within NLCS 

units. In New Mexico, the BLM worked with the Las Cruces Museum of Nature and Science to 

establish exhibits on the Prehistoric Trackways National Monument. The new visitor center will 

provide educational opportunities about BLM-managed resources at the nearby Prehistoric 

Trackways National Monument. These facilities also draw additional tourism that supports the 

local economy and creates economic diversity. 

These lands are critical to the implementation of important Administration initiatives, including 

America’s Great Outdoors and Let’s Move Outside. In addition, the NLCS connects youth, 

veterans, and families to the outdoors through a number of programs and recreational 

opportunities including internship opportunities for students, employment and training 

opportunities for veterans, and volunteer opportunities on NLCS designated units. The 

incredible beauty and sense of adventure provided by NLCS lands entice both individuals and 

families to get outside and get moving.

In addition to the revenue generated by tourism, the lands of the NLCS also provides revenue 

from energy development, ranching, mineral extraction, and art. These lands must be 

conserved for the future and the BLM promotes the sustainable use of NLCS lands as 

supported through the proclamation or designating legislation. 

The following table displays the amounts of funding allocated to the NLCS. These amounts 

represent recurring base funding only.

Management of Land & Resources:

NMs & NCAs 29,909 31,819 34,000 +1,898

Wilderness Management 17,300 18,264 18,435 +0

Oregon & California Grant Lands:

NMs & NCAs 709 748 753 +0

Crosscutting Programs:

National Wild & Scenic River Program 6,708 6,925 6,951 +26

National Scenic & Historic Trail Program 6,008 6,358 6,395 +37

Total, National Landscape Conservation System 60,634 64,114 66,534 +1,961

2013 

Actual

2014 

Enacted

2015 

Request

Change 

from 2014

National Landscape Conservation System
Bureau of Land Management 2015 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 3

Units of the National Landscape Conservation System

The following table displays the individual units, by designation type, included in BLM’s National 

Landscape Conservation System. The NLCS includes National Monuments, National 

Conservation Areas and Similar Designations, Wilderness Areas, Wilderness Study Areas, 

National Wild and Scenic Rivers, National Historic Trails, National Scenic Trails, and Other 

Congressional Designations.

19 National Monuments

Arizona

Agua Fria 70,900 acres

Grand Canyon-Parashant 808,747 acres

Ironwood Forest 128,398 acres

Sonoran Desert 486,600 acres

Vermilion Cliffs 279,568 acres

California

California Coastal 607 acres along 840 miles of coastline

Carrizo Plain 204,107 acres

Fort Ord National Monument 7,205 acres

Santa Rosa-San Jacinto Mountains 94,055 acres

Colorado Canyons of the Ancients 163,892 acres

Idaho Craters of the Moon 274,693 acres

Montana Pompeys Pillar 51 acres

Upper Missouri River Breaks 374,976 acres

New 

Mexico

Kasha-Katuwe Tent Rocks 4,124 acres

Prehistoric Trackways 5,255 acres

Rio Grande del Norte 242,555 acres

Oregon Cascade-Siskiyou 55,930 acres

San Juan Islands 970 acres

Utah Grand Staircase-Escalante 1,866,134 acres

21 National Conservation Areas and Similar Designations

Alaska Steese NCA 1,208,624 acres

Arizona

Gila Box Riparian NCA 21,767 acres

Las Cienegas NCA 41,972 acres

San Pedro Riparian NCA 55,495 acres

California

King Range NCA 56,167 acres

Headwaters Forest Reserve 7,542 acres

Piedras Blancas Historic Light Station Outstanding National Area 

(ONA) 18 acres

Colorado

McInnis Canyon NCA 123,750 acres

Gunnison Gorge NCA 62,844 acres

Dominguez-Escalante NCA 212,074 acres

Florida Jupiter Inlet Lighthouse ONA 63 acres

Idaho Morley Nelson Snake River Birds of Prey NCA 470,840 acres

Nevada

Black Rock Desert High Rock Canyon Emigrant Trails NCA 799,165 acres

Red Rock Canyon NCA 198,065 acres

Sloan Canyon NCA 48,438 acres

New 

Mexico

Fort Stanton-Snowy River Cave NCA 24,977

El Malpais NCA 231,230 acres

Oregon Steens Mountain Cooperative Management and Protection Area 428,242 acres

Yaquina Head ONA 95 acres

Utah Red Cliffs NCA 44,839 acres

Beaver Dam Wash NCA 63,478 acres
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221 Wilderness Areas 8,736,691 acres

545 Wilderness Study Areas 12,835,035 acres

69 National Wild and Scenic Rivers 2,416 miles

1,164,894 acres (20% of the national system)

11 National Historic Trails

5,343 miles

California 1,493 miles

El Camino Real de Tierra Adentro 60 miles

Iditarod 418 miles

Lewis and Clark 369 miles

Mormon Pioneer 498 miles

Nez Perce 70 miles

Oregon 848 miles

Pony Express 596 miles

San Juan Bautista De Anza 103 miles

Old Spanish 887 miles

Washington Rochambeau Revolutionary Route 1 mile

5 National Scenic Trails

667 miles

Arizona 31 miles

Continental Divide 389 miles

Pacific Crest 233 miles

Pacific Northwest 12 miles

Potomac Heritage 2 miles

Other Congressional Designations

California Desert* 10,671,080 acres

*The lands of the California Desert are congressionally designated, but are not 

a part of the National Landscape Conservation System.

National Wild and Scenic Rivers Program

The National Wild and Scenic Rivers System (WSR) was created by Congress in 1968 to 

preserve rivers with outstanding natural, cultural, and recreational values in a free-flowing 

condition for the enjoyment of present and future generations. The Act is notable for 

safeguarding the special character of these rivers, while also recognizing the potential for their 

appropriate use and development. It encourages river management that crosses political 

boundaries and promotes public participation in developing goals for river protection. Through 

the America’s Great Outdoors (AGO) initiative, the President emphasized the value of rivers and 

waterways to our Nation’s history, economy, and way of life. Rivers connect people and 

communities to America’s great outdoors and are vital migration corridors for fish and wildlife. 

In the 21st century, healthy rivers will enhance the resilience of human and natural 

communities. Millions of people visit our WSRs annually either on their own or through 

hundreds of permitted commercial outfitters. This use provides significant economic impact to 

local communities and helps them to sustain the natural heritage of their wild and scenic rivers.
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Chapter IV – Crosscutting Programs Page IV - 5

The BLM WSR program is part of the National Landscape Conservation System and engages 

local communities to help them foster a sense of shared stewardship and pride in their local 

WSRs. 

The BLM has the responsibility to protect and enhance river values (free flowing condition, 

water quality, and outstandingly remarkable values) on 69 designated rivers in seven States 

covering over 2,400 miles and 1,165,000 acres (about 20 percent of the WSR ) and on 

hundreds of eligible and suitable rivers across the western States. The BLM WSR Program 

focuses on the protection and enhancement of river values with the following activities:

 Evaluate free flowing rivers to determine if they are eligible for inclusion within the WSR 

and assign a tentative classification (wild, scenic or recreational) for rivers determined 

eligible;

 Submit recommendations resulting from studies on potential WSR;

 Manage eligible, suitable or designated WSRs to protect and enhance their free flowing 

character, water quality and identified outstandingly remarkable values;

 Develop and implement comprehensive river management plans that reflect the 

requirements of the WSR Act and national policies and guidance;

 Monitor WSR and eligible and suitable river segments to minimize noxious weed 

infestations, trespass activities, and the impacts from commercial and non-commercial 

recreation activities;

 Provide visitor services and public information and interpretation through publications, 

wayside exhibits, appropriate instructional signage, and river-related visitor centers;

 Restore riparian habitats to healthy and functioning condition by removing or modifying 

activities creating unacceptable impacts along rivers;

 Make determinations regarding the impacts of proposed water resources projects on 

designated WSR, congressionally authorized study rivers, and on rivers identified for 

study by the BLM; and

 Maintain relationships with tribal governments, other Federal agencies, State and local 

governments, friends’ groups and other non-profit organizations, and the public

concerned with comprehensive river-related plans, studies, and/or management.

The BLM’s revised Wild and Scenic Rivers Manual provides policy and program direction for 

identification, evaluation, planning, and management of designated rivers, congressionally 

authorized study rivers, and BLM-identified eligible and suitable rivers. The BLM will continue to 

implement this updated policy and program guidance by providing training courses that enable 

staff and managers to work collaboratively with partners and communities to protect river values 

and manage river uses. The BLM will coordinate with other programs, agencies and 

organizations to strengthen and improve monitoring strategies and best management practices, 

using partnerships, science and outreach to help monitor and manage river values. 

The WSR program works to implement the AGO initiative through collaborative landscape and 

watershed protection and restoration work, improved recreation access and opportunities, and 

community partnerships that enhance quality of life outcomes for residents and visitors. The 

BLM will focus on protecting and restoring rivers for people and wildlife; enhancing river 

recreation which supports jobs in tourism and outdoor recreation; working with communities to 

take action to secure economic, social and ecological benefits of having a healthy river; and 

working collaboratively with local, State, tribal and other Federal agencies on river protection, 

restoration, and recreation access. 
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Page IV - 6 Chapter IV – Crosscutting Programs

The WSR program is funded by multiple subactivities at $7.0 million within the MLR and O&C 

appropriations (see table below). Fees collected at specific recreation sites and for Special 

Recreation Permits are returned to those locations to support management of WSRs. The BLM 

also leverages base funding by matching volunteer labor and contributions; cooperating with the 

National Park Service (NPS), the U.S. Forest Service (USFS) and State agencies where river 

areas are co-managed. Donations of labor and contributed funds from river and other 

partnership organizations increase BLM’s capability and improve outcomes. The BLM plans to 

align funding and performance to increase program efficiencies and transparency. 

National Scenic and Historic Trails Program

Congressionally designated National Scenic and Historic Trails (National Trails) are corridors of 

cultural heritage, resource conservation, and outstanding recreation opportunities. National 

Trails span thousands of miles in nearly all 50 States, crossing Federal, State, tribal, local 

government, and private lands. The National Trails System was established under the National 

Trails System Act of 1968. Program responsibilities include managing eighteen National Trails 

(five scenic and 13 historic) on the ground, crossing nearly 6,000 miles of BLM public lands in 

14 States. The BLM serves as interagency Trail Administrator, or trail-wide lead, for the 

Iditarod, Old Spanish, and El Camino Real de Tierra Adentro National Historic Trails. The BLM 

coordinates closely with the National Park Service and U.S. Forest Service Trail Administrators 

and other National Trail managing agencies to promote a seamless system of public trails. The 

Bureau also supports five National Trail-related visitor centers which tell the stories of the trails, 

Soil, Water & Air Management 180 181 194 +13

Rangeland Management 468 457 435 -22

Public Domain Forest Mgmt 118 118 118 +0

Riparian Management 419 419 419 +0

Cultural Resources Mgmt 320 320 320 +0

Wild Horse & Burro Mgmt 9 9 10 +1

Wildlife Management 214 214 214 +0

Fisheries Management 347 352 359 +7

Threatened & Endangered Species 199 213 213 +0

Recreation Resources Management 2,726 2,924 2,947 +23

Oil & Gas Management 29 31 23 -8

Alaska Conveyance 138 113 86 -27

Cadastral, Lands & Realty Mgmt - 50 50 +0

Land & Realty Management 46 - - +0

Hazardous Materials Management 121 121 121 +0

Annual Maint. & Ops 1,203 1,220 1,259 +39

Administrative Support 56 59 59 +0

Other Forest Resource Mgmt 115 124 124 +0

National Wild & Scenic Rivers 6,708 6,925 6,951 +26

National Wild & Scenic River Program

2013 

Actual

2014 

Enacted

2015 

Request

Change 

from 2014
Bureau of Land Management 2015 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 7

fostering public enjoyment, appreciation, volunteerism, and learning, while inspiring people to 

get outside to experience these National Trail treasures. 

The BLM safeguards the nature and purposes of National Trails, and protects the recreational, 

scenic, historic, natural, and cultural qualities of the areas through which the trails pass. The 

BLM strives to model the America’s Great Outdoors initiative along these trails in its work with 

volunteers, nonprofit trail groups, long-term partners, and willing landowners. National Trail work 

is guided by the 15-year National Landscape Conservation System Strategy and the 10-year 

National Trails Strategy.

National Scenic Trails provide outdoor recreation opportunities, public enjoyment, and promote 

conservation. They are planned, constructed, and maintained by the BLM and volunteers to 

provide visitors with long-distance hiking, backpacking, day hiking, and horseback riding 

opportunities, and to support related recreational activities such as camping, fishing, hunting, 

wildlife observation, nature study, and photography. National Scenic Trails provide public 

access to some of the Nation’s most spectacular vistas, guide visitors through canyons, along 

arid deserts, across windswept tundra, and to the summit of snowcapped peaks.

National Historic Trails tell the iconic stories of America, including exploration, western 

expansion and settlement, economic development, cultural divides, and the pursuit of religious 

freedom. These pathways of history and the associated settings are identified, protected, 

restored, stabilized, and interpreted by the BLM and volunteers for future generations. Physical 

remnant and artifact discoveries include wagon ruts, swales, wagon train encampments, 

structures, signature rocks, pioneer gravesites, and skirmish sites, and artifacts such as period 

coins, weapons, household items, and tools. Public land visitors can experience National 

Historic Trails and the stories of the trails at visitor centers, wayside exhibits, historic sites, 

recreational trails, auto tour routes, and along intact trail segments. The BLM manages more 

miles of National Historic Trails than any other Federal agency.

Capacity-building and leveraging limited funding is critical to program success. The BLM 

recognizes its charge under the National Trails System Act of 1968 in encouraging and assisting 

nonprofit organizations, and provides limited support for training, education, workshops, 

conferences, publications, and youth apprenticeships. National Trails stewardship work is 

effected through cooperative agreements to acknowledge, support, and leverage resources. As 

part of this effort, approximately twenty major nonprofit trail organizations, such as the Nez 

Perce Trails Foundation, Oregon-California Trails Association, National Pony Express 

Association, and the Pacific Crest Trail Association, contribute thousands of hours working with 

the BLM in National Trail planning, development, operations, maintenance, and acquisition. 

National Trail organizations estimate that volunteer organizations contribute more than $35.0 

million in annual program value through volunteer hours and fiscal contributions.

 

The BLM National Trails System Manuals Series is the first of its kind for any Federal agency. 

The manuals provide the policy necessary to administer, inventory, plan, manage, and monitor 

National Trails and trails under study for designation. Under the National Trails System Act, the 

BLM may permit projects that do not substantially interfere with nature and purposes of the 

National Trails and must make efforts to avoid activities incompatible with National Trail 

purposes. The policy requires the BLM to safeguard the nature and purposes of National Trails, 

and protect the resources, qualities, values, (recreational, scenic, historic, natural, and cultural), 

associated settings, and the primary trail use or uses through the land use planning process and 

during the environmental review process. Training course development for the new manual 

series and this work is underway at the BLM National Training Center.
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BLM National Trail inventory and monitoring work is readily identifiable and systematic within 

budget and performance systems. This work is critical for the establishment of National Trail 

management corridors through land use planning, and in proposed project review for priority 

renewable and nonrenewable energy development and transmission projects. 

 

The BLM National Trails Program is funded by multiple subactivities within the MLR

appropriation (see table below). The budget proposes $6.4 million in 2015. Fees collected at 

National Trail Visitor Centers and specific recreation sites are returned to those locations. The 

BLM also leverages base funding by matching volunteer labor and contributions; applying for 

grants or other Federal or State funding; and through cooperative agreements at the local, 

State, and national level. The BLM plans to align funding and performance to increase program 

efficiencies and improve the transparency for how resources are allocated throughout the 

National Trails System.

Service First

Service First is a partnership authority (P.L. 106-291, as amended by P.L. 109-54, P.L. 112-74, 

and further amended by P.L 113-76) between the agencies and offices of the Department of the 

Interior and the agencies and offices of the Department of Agriculture. Service First authority 

was made permanent in the Consolidated Appropriations Act, 2012 (P.L. 112-74) and further 

expanded to include all agencies and offices in both the Department of the Interior and 

Department of Agriculture in the Consolidated Appropriations Act, 2014 (P.L. 113-76).

The BLM continues to strengthen partnerships among the National Park Service (NPS), the 

U.S. Fish and Wildlife Service (FWS), and the U.S. Forest Service (USFS) to attain the three 

Service First goals of improving natural and cultural resource stewardship, enhancing customer 

service, and increasing operational efficiency. The four agencies provide national leadership, 

direction, and counsel on implementing the authorities and promoting the principles of Service 

First through the Service First Leadership Team (SFLT). The SFLT’s goals include enhancing 

each agency’s ability to meet its mission; increasing collective capacity to manage Federal 

resources on a landscape basis; overcoming institutional barriers that hinder interagency 

programs and initiatives; and improving constituent and customer service and resource 

management through streamlined processes, increased efficiencies, and use of emerging 

technologies.

Soil, Water & Air Management 112 112 121 +9

Rangeland Management 69 68 64 -4

Riparian Management 20 20 20 +0

Cultural Resources Mgmt 557 557 557 +0

Wildlife Management 93 93 93 +0

Threatened & Endangered Species 93 99 99 +0

Recreation Resources Management 4,067 4,397 4,397 +0

Annual Maint. & Ops 997 1,012 1,044 32

National Scenic & Historic Trails 6,008 6,358 6,395 +37

National Scenic & Historic Trail Program

2013 

Actual

2014 

Enacted

2015 

Request

Change 

from 2014
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Chapter IV – Crosscutting Programs Page IV - 9

Efficient Government through Service First

The BLM San Luis Valley Field Office is a Service 

First, dual-delegated unit. All line officers have 

both USFS and BLM management authorities and 

responsibilities. All units are comprised of blended 

staff. One unit also has a FWS Ecological 

Services staff member that provides technical 

assistance and, on some projects, is an 

interdisciplinary team member. The BLM and the 

USFS share personnel and resources with the San 

Luis Valley National Wildlife Refuge Complex and 

Great Sand Dunes National Park and Preserve.

By integrating staff, budget, and other resources, 

the BLM and the USFS are able to effectively save 

approximately 10 FTE compared to separate units. 

This savings is possible by adding to the capacity 

of one agency or the other to complete priority 

projects. Either agency can purchase expertise 

from the other; eliminating the need for each 

agency to have all expertise on staff. Flexibility is 

gained by the ability to move personnel to the 

agency and program where the need and funding 

is greatest.

Discussions are already underway with the 

legal community in both Departments about 

implementing the expanded authority in the 

new agencies. Further, both Departments 

and other agencies are exploring how and 

where to use the newly expanded authority 

in existing and new partnerships. 

In 2015, Service First will continue to focus 

on opportunities for co-location of agency 

facilities where feasible and appropriate. 

Co-location better facilitates inter-agency 

communication and results in integration of 

natural resource management across the 

landscape. It is one method for increasing 

coordination across resource programs that 

include conserving water, hazardous fuels 

reduction, landscape-scale species 

conservation, sustaining rural communities, 

nurturing youth through education and 

connections to the outdoors, and recreation 

management including off-highway vehicle 

use and trail management.

Service First will also continue to make advances in creating an integrated information 

technology system where employees will be able to access other agencies’ data and systems 

while maintaining appropriate security levels. Joint access to the more complex databases 

including geographic information systems, invasive weed inventories, and other natural 

resource data will result in more seamless customer service and improve operational efficiency 

for shared employees and co-located offices.

Finally, the agencies plan to build a strong interagency network with focused tools and regular 

outreach and information exchange such as best practices on Service First opportunities, 

challenges and successes.

Engaging the Next Generation

With the launch of the 21st-Century Conservation Service Corps (21CSC), the Youth in the 

Great Outdoors initiative is on a well-defined path to creating the next generation of 

conservation leaders. The BLM has joined with its Federal and non-Federal partners to engage 

young people and veterans in working to protect, restore, and enhance America’s Great 

Outdoors. Building on youth education and engagement programs that foster personal 

connections with our Nation’s public lands, the BLM is engaging youth aged 15-25, as well as 

veterans, in work that supports the multiple-use mission of the Bureau. Young people are 

employed in priority projects such as trail construction and maintenance, habitat restoration, and 

inventorying and monitoring in support of a wide range of program needs, including

archaeological resources; wilderness characteristics; soil, water, air and climate resources; and 

renewable energy compliance.
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The BLM’s National Strategy on Education, Interpretation, and Youth Engagement envisions 

young people involved from an early age in learning and recreation on public lands, who then go 

on to become active stewards and conservation leaders as adults. The BLM’s strategic focus 

aligns well with the four pillars of the Secretary’s youth platform announced early in FY 2014. 

The Secretary has pledged that the Department will engage the next generation by providing 

opportunities to play, learn, serve, and work on public lands by: 

 Creating recreational opportunities for more than 10 million young people by 2017;

 Providing educational opportunities in the natural classrooms that our public lands 

provide to at least 10 million K-12 students annually;

 Engaging one million volunteers in support of public lands; and

 Providing 100,000 work and training opportunities to young people over the next four 

years.

The 2015 President’s budget request includes an increase of $1.3 million in support of the 

Secretary’s Youth initiative. The funding will be used to enhance BLM’s capability to accomplish 

high-priority projects in a broad range of resource programs and promote quality participant 

experiences and pathways to careers. This includes an increase for expanded youth programs 

and partnerships 

BLM will continue to collaborate with youth corps organizations, with a special emphasis on 

those organizations that meet the needs of underserved youth, including those from Tribes and 

rural communities. In 2015, the BLM will also continue to identify science and resource priorities 

that can be addressed through short- or long-term projects involving the 21CSC and other youth 

corps and veteran’s crews, as well as volunteers, field schools, and interns. 

In 2015, the BLM will also focus on identifying mission-critical jobs and skills that are needed for 

entry-level positions in those occupations. This includes implementation of a resource assistant 

internship program based on the DOI’s Direct Hiring Authority and focused on mission-critical 

jobs. In addition, by expanding partnerships with universities and professional organizations, the 

Bureau will enable more young people to explore careers in Science, Technology, Engineering, 

and Mathematics (STEM), in alignment with DOI’s new Strategic Plan on STEM Education and 

Employment Pathways. Opportunities to pursue field-based investigations and experiences, 

such as those provided to college interns and to K-12 students involved in the BLM Hands on 

the Land network of outdoor classrooms, can nurture and sustain student interest in pursuing 

STEM degrees and careers. 

Education

The BLM’s National Strategy for Education, Interpretation, and Youth Engagement envisions an 

education program that enhances the public’s environmental and heritage literacy and its 

understanding of land management issues. The strategy focuses on identifying priority themes, 

working with partners to assist in the development and delivery of programs, and identifying and 

using relevant national and state education standards and best practices to improve the 

education programs and products that the BLM produces.

In 2015, the BLM will establish criteria for educational competencies; conduct a competency 

training needs assessment; develop a core competency-training plan for all staff, volunteers, 

and education partners who deliver educational programming; and identify staff who should 
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Chapter IV – Crosscutting Programs Page IV - 11

meet the established criteria. Program staff will also develop educational tools and resources

identified in a 2014 needs assessment. 

The BLM offers a range of education programs for youth and adults, including the following 

signature programs:

 Hands on the Land: Through the national HOL network of outdoor classrooms, the 

BLM’s 56 HOL sites collaborate with local schools and communities to educate 50,000 

students on the public lands each year. Field-based educational programming at HOL 

sites fosters connections to nature, exposes students to issues confronting 21st-century 

land managers, and creates broad-based community support for the BLM to address 

interior’s Science, Technology, Engineering, and Mathematics (STEM) Education and 

Employment Pathways Strategic Plan and other Interior and national youth initiatives. 

 Project Archaeology: Project Archaeology, the BLM’s primary heritage education 

program, serves approximately 1,000 educators each year (totaling more than 11,000 

since the inception of the program) through professional development for classroom 

teachers and informal educators, and through high-quality curricular materials. These 

educators reach an estimated 200,000 learners per year with high-quality cultural 

resource materials and programs. In addition to hosting professional development 

workshops for teachers, BLM field offices incorporate Project Archaeology materials into 

programs such as HOL and into materials and programs for local schools and the public.

 Take It Outside! Opportunities for young people and families to get outdoors and 

informally learn about the public lands are offered through “Take It Outside!” activities 

and partnerships with over 300 organizations annually, including the Boy Scouts of 

America and Girl Scouts of the USA. Annually, “Take It Outside!” reaches over 70,000 

youth and families through more than 200 different types of activities on BLM lands, 

including overnight and day camps; National Public Lands Day projects; and recreational 

outings such as fishing, hiking, and paleontology explorations. 

 Stewardship: For over 20 years, the BLM has collaborated with the Leave No Trace 

Center for Outdoor Ethics and Tread Lightly!, Inc., to teach BLM staff and visitors how to 

behave responsibly on public lands through outdoor ethics education. Outdoor ethics 

education, training, and materials help the public learn to take care of the lands they visit 

and foster a sense of stewardship for public lands. BLM visitors also learn outdoor ethics 

through “Take It Outside!” activities, educational signs, printed materials, and informal 

training. In 2013, BLM reached over 1,000 Boy Scouts and Leaders at the National Boy 

Scout Jamboree with outdoor ethics education activities. 

 Public Education Opportunities: Field trips, classroom visits by resource 

professionals, and service-learning opportunities not only educate but also foster 

conservation and stewardship ethics. Additionally, BLM lands provide a rich opportunity 

for collegiate-level research, professional development opportunities for teachers and 

continuing education for seniors.

The BLM’s increased use of technology helps the agency reach a broad array of audiences to 

enhance public understanding, achieve management goals, foster stewardship, and build public 

support. BLM offices also use social media, web, and mobile technologies to provide 

educational programs, information, and materials to an ever-expanding virtual audience.
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Page IV - 12 Chapter IV – Crosscutting Programs

Interpretation

Serving audiences with diverse backgrounds, viewpoints, and needs, BLM interpretive 

programs and services connect public land visitors to BLM’s natural and cultural resources, 

enhance understanding of resource management issues, add to the quality of visitor 

experiences, and build public interest in conserving and protecting America’s public lands. 

In 2015, the Interpretation Program as outlined in the BLM Education, Interpretation and Youth 

Engagement National Strategy will develop core messages to incorporate into interpretive 

products and programs on the BLM and its mission and establish baseline standards for the 

interpretive program and product quality. The program will use comprehensive data collection 

techniques to assess interpretation program costs, benefits, and effectiveness at both the State 

and national levels. Delivery of current interpretation, information, safety, and resource 

protection messages will utilize the BLM’s growing social media presence and the internet.

Junior Explorers: The BLM’s Junior Explorer program was formally launched in 2013 with the 

goal of encouraging awareness of the BLM and public land stewardship, and informally 

educating children about the natural and social sciences. The BLM Junior Explorer program 

provides an avenue for BLM district and field offices to develop and provide engaging, highquality educational materials and activities to elementary-age children, as well as their parents 

and teachers. 

Award-winning interpretation and education programs with the Bureau include:

 Boise District Office (Idaho): The development and construction of a sage-grouse 

habitat demonstration garden and ethno botany interpretative panels at the Boise District 

Office. The garden highlights the traditional use of native plants by First Americans and 

early European settlers, and demonstrates the relationship between sage-grouse life 

cycles and vegetation types. The garden allows visitors to gain an appreciation for the 

challenges of multiple-use management and the importance of understanding and 

balancing the needs of diverse public land resources and users.

 Rock Springs Field Office (Wyoming): An annual wild horse education and showcase 

event, which allows local fourth-graders and others to see, touch, and spend time among 

wild horses. The event encourages positive attitudes and understanding in younger 

community members to generate support for the BLM Wild Horse and Burro adoption 

program.

Volunteers

The BLM Volunteer Program engages thousands of citizens nationwide each year and provides 

a return of over 26:1 on agency funds invested in program management, which includes 

volunteer recruitment, training, and recognition, as well as staff training and fulfillment of legal 

requirements, such as volunteer background checks. 

Volunteer contributions to the BLM are highly valued and vitally important to achieving agency 

goals. In 2013, volunteers contributed an estimated 1,185,275 hours to BLM lands and 

resources, including national monuments and national conservation areas, recreation areas and 

trails, wild and scenic rivers, rangelands, cultural resources, and wild horses and burros. 

Among the programs and projects completed were: 
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Chapter IV – Crosscutting Programs Page IV - 13

 Cultural and Paleontological Resources: Taos Field Office, NM: For the 11th straight 

year, the BLM worked with a nonprofit group on a 2-week petroglyph-recording project 

on Mesa Prieta. Local student volunteers included Native Americans from the OhkayOwingeh and Taos Pueblos, as well as youth from several towns in north-central New 

Mexico. Participants used GPS technology, digital photography, and extensive written 

documentation to record hundreds of petroglyphs that were discovered during the 

inventory. Data recorded during the project has been put into a geographic information 

system (GIS) database that will become a powerful tool for data curation and research.

 Recreation: Kingman Field Office, AZ: A local Boy Scout organized the installation of a 

kiosk and a trash cleanup on nearly 100 acres of BLM lands in the Hualapai Mountains, 

earning the rank of Eagle Scout for his efforts. More than 30 volunteers, including many 

youth, logged over 400 hours. Interpretive material that focuses on Leave No Trace 

ethics, camping limits, and illegal dumping was placed in the new kiosk. Since the 

event, target shooters have been more responsible about picking up their shooting 

debris and illegal dumping has significantly decreased in the area.

 National Public Lands Day: National Public Lands Day (NPLD) is the nation’s largest 

volunteer workday on behalf of the public lands and 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. Each year, the BLM engages the services of about 10,000 NPLD 

volunteers at more than 135 sites managed by 90+ BLM field offices in 18-20 States. 

Those volunteers regularly produce public lands enhancements valued at more than $1 

million, representing an annual return on investment of 5:1 or greater.

In 2015, the BLM will focus on: expanding the slate of available volunteer administration 

training programs in order to both strengthen the skill sets of agency volunteer coordinators and 

staff working with volunteers and increase the capacity of long-term, highly-skilled volunteers;

fully utilizing the interagency Volunteer.gov web portal to conduct targeted recruitment of 

volunteers; and, building on the resources available to volunteer coordinators and staff to 

ensure the success of BLM volunteer projects.

Partnerships

In 2015, the BLM will further develop and bolster its capacity to support partnerships to improve

the management, stewardship, and public enjoyment of the Nation’s public lands. To achieve 

these objectives, the BLM will begin implementing a five-year national strategy and 

implementation plan that provides a framework to support, advance, and strengthen the use of 

partnerships across BLM programs. Areas of focus include staffing and training, guidance and 

tools, practitioner networks, and data collection and reporting. The strategy and plan build on 

the BLM’s extensive and successful partnership history and will help advance partnerships to 

the next level. 

Successful and diverse partnerships across many BLM programs address agency and 

Department priorities. Some recent examples include:

 The Cienega Watershed Partnership (Arizona), winner of the 2013 Secretary’s 

Partners in Conservation Awards, promotes understanding and stewardship of the 

natural and cultural resources of the more than 45,000-acre Las Cienegas National 

Conservation Area. Project work has recovered populations of native fish and threatened 

leopard frogs, developed refugia habitats, eliminated nonnative aquatic species, planted 

native aquatic plants, and engaged local communities. The partnership has: brought 
2015 Budget Justifications Bureau of Land Management

Page IV - 14 Chapter IV – Crosscutting Programs

together numerous players to involve youth in restoration work, giving them valuable 

work experience for careers in natural resources; conducted scientific investigations in 

the watersheds of the area; offered training in erosion control and water harvesting 

techniques; and encouraged cultural preservation of the region through the recording of 

oral history interviews.

 The University of Nevada Cooperative Extension-Bootstraps Program (Nevada) is a 

model youth engagement partnership that equips at-risk young adults with the skills to 

return to school or enter the workforce by involving them in natural resource project 

work. The program includes field experience and practical classroom instruction focused 

on self-development. Since its launch nine years ago, it has employed more than 100 

participants, two-thirds of whom are Native American. The young adults’ outstanding 

stewardship has enhanced sage-grouse and other wildlife habitat on Nevada’s public 

lands and has included the removal and control of more than 12,000 acres of pinyonjuniper trees in preliminary priority sage-grouse habitat. 

 The Intergovernmental Internship Cooperative (Utah), led by Southern Utah 

University’s Harry Reid Outdoor Engagement Center, is an innovative partnership that 

recruits students, educators, and young people to complete vital agency conservation 

projects on public lands in southern Utah and northern Arizona, while training them for 

careers in land and resource management. Student interns work as interpreters, natural 

and cultural resource support staff, fee collectors, researchers, and trail builders. 

Participants repair recreational trails, monitor and rehabilitate wilderness study areas, 

restore streams and riparian areas, reduce woody fuel loads and invasive vegetation, 

establish and monitor range plot frequencies, monitor wildlife, and monitor and restore 

cultural resources. One of the program’s successes is the creation of the first certified 

Wildland Firefighter crew in Utah’s university system.
Bureau of Land Management 2015 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 15

In 2015, the BLM will move forward with the implementation of a number of major Executive 

and Secretarial orders including: 

 Executive Order Improving Performance of Federal Permitting and Review of 

Infrastructure Projects (March 2012), that directed agencies to significantly reduce the 

aggregate time required to make decisions in the permitting and review of infrastructure 

projects and improve environmental and community outcomes. 

 Executive Order Preparing the United States for the Impacts of Climate Change 

(November 1, 2013), that directed Federal agencies to help improve climate 

preparedness and resilience through deliberate preparation, close cooperation, and 

coordinated planning. 

 Secretarial Order 3323 (September 2012), that established America’s Great Outdoors 

Program within DOI to ensure that Federal lands are managed for conservation 

purposes with sound stewardship and a commitment to conserve habitat and fish and 

wildlife migration corridors; 

 DOI Manual for Climate Change Policy (523 DM 1), issued in December 2012, which 

stated that it is the policy of the Department to effectively and efficiently adapt to the 

challenges posed by climate change to its mission, programs, operations, and 

personnel; 

 Secretarial Order No. 3330 (October 2013): Improving Mitigation Policies and 

Practices of the Department of the Interior (DOI), which identified a landscape-scale 

approach to identifying and facilitating investments in key regional conservation 

priorities as central to the DOI’s responsibility to oversee Federal lands for the benefit 

of current and future generations. 

 

Landscape Approach to Managing the Public Lands

The 2015 budget request enhances BLM capacity to use regional information to manage the 

public lands to achieve conservation and development priorities in the face of compounding 

stressors such as prolonged drought, catastrophic wildland fire, invasive species and urban 

growth. 

Over the last ten years, the BLM has developed a number of tools to help manage the public 

lands on a landscape basis. These tools include creating the capacity to systematically 

synthesize large amounts of geospatial information to help the BLM and its partners develop a 

shared understanding of regional trends and regional conservation and development 

opportunities; working with public land users to institutionalize the “mitigation hierarchy” to help 

achieve conservation and development goals; developing regional partnerships to coordinate 

and focus multiple funding streams to help achieve regional conservation goals; and identifying 

core indicators, standard methods and multi-scale sampling frameworks to monitor changes in 

terrestrial and aquatic condition across a region.

The BLM is incorporating the use of these tools into a number of major initiatives including the 

Greater Sage-Grouse planning initiative, implementation of the Western Solar Energy Plan, and 

into the development of a west-wide monitoring program for Wild Horse and Burro herd 

management areas. 

In 2015, the BLM will build on these successes by moving forward with a landscape approach to 

planning and development of corporate geospatial data solutions that will enable full 

implementation of the landscape approach. 
2015 Budget Justifications Bureau of Land Management

Page IV - 16 Chapter IV – Crosscutting Programs

The Landscape Approach: The BLM is working with Federal, State, tribal and non-governmental 

partners to develop a landscape approach to managing the public lands. This approach will use 

broad ecological assessments to understand resource conditions and trends and to identify 

opportunities for resource conservation and development. As shown on the diagram to the

right, the landscape approach to managing the Nation’s public lands consists of several 

interconnected actions, including regional assessments, regional conservation and development 

strategies, land use plans, projects and permits, monitoring for adaptive management, science 

integration, and geospatial services. Taken together, these components will enable the BLM 

and its partners to more effectively evaluate and address conservation and development needs 

across programmatic, organizational and administrative boundaries. 

Regional Assessments: The BLM released four Rapid Ecoregional Assessments (REAs) in 

2013 and is planning to release four additional REAs in 2014, six in 2015, and one in 2016. 

Taken together, these 15 REAs cover over 700 million acres of public and non-public lands. The 

REAs are peer-reviewed science products that synthesize existing information (including a 

significant amount of non-BLM data) about resource conditions and trends. They highlight and 

map areas of high ecological value; gauge potential risks from stressors including climate 

change; and establish landscape-scale baseline ecological data to gauge the effect and 

effectiveness of future management actions. The REAs provide the BLM with a large amount of 

information about current and projected resource condition, which the Bureau can then use 

along with similar information from other large-scale assessments to help identify potential 

development and conservation priorities; 

prepare land use plans and plan 

amendments; conduct cumulative impact 

analyses; develop best management 

practices; and authorize public land uses. 

The REAs and other sources for regional 

information, such as the Western 

Governors Association’s Crucial Habitat 

Assessment Tool, are foundational to the 

landscape management approach. 

The BLM is working with a multistakeholder group of Federal, State and 

non-governmental organizations to 

enhance the coordination and integration 

of regional assessment activities. This 

group recently completed the first phase 

of a Field Guide to Landscape 

Assessments and is now planning to 

develop more comprehensive regional 

guides for one or more ecoregions. (The 

phase one Field Guide is available at 

https://my.usgs.gov/lfg/.) 

Regional Conservation and Development 

Strategies are critical bridges between 

ecoregional assessments and land use 

planning and other decision-making

processes. The BLM is working with 

partners to inventory and compile existing 

The landscape approach to public land management 

is a multi-year investment. The BLM anticipates that 

in each ecoregion it will take several years to 

implement this multi-scale approach to management.

 The first two to three years focuses on 

conducting REAs. In these assessments, the 

BLM and its partners: identify management 

questions; develop conceptual models; 

evaluate significant ecological values such 

as native fish, wildlife, and plants; evaluate 

terrestrial condition and aquatic condition; 

and identify four potential change agents 

(climate change, fire, invasive plants and 

animals, and urban and industrial 

development).

 In the third and fourth year, efforts to develop 

Regional Conservation and Development 

strategies are kicked-off. To provide a solid 

understanding of the components of REAs 

and the data, scientific approaches, modeling 

tools, and results for each ecoregion, the 

BLM is offering hands-on workshops and online content delivery, such as YouTube 

videos, to staff, partners, and the public that 

will increase our ability to utilize the vast 

amount of data and information in the REAs 

to enhance decision making. 

 The next three to ten years are devoted to 

implementing planned actions, effectiveness 

monitoring, and data analysis and review for 

adaptive management. 
Bureau of Land Management 2015 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 17

assessments and crosswalk the priority areas identified in each assessment. 

In 2014, the BLM will begin work with a number of Landscape Conservation Cooperatives (LCC) 

to develop synthesis reports covering all or significant portions of four ecoregions: the Central 

Basin and Range, the Colorado Plateau, the Mojave Basin and Range, and the Northwestern 

Plains. These synthesis reports will: help develop a shared understanding of the regional 

conservation and development opportunities highlighted by the REAs and other large-scale 

assessments; identify what the BLM and its partners are already doing to address regional 

challenges and opportunities; and outline additional actions that could be undertaken over the 

next five to ten years to help achieve regional goals. These regional strategies will significantly 

help the BLM implement the recent Secretarial Order on Improving Mitigation Policies and 

Practices. Because the REA information will be applied to many different types of management 

concerns, it is likely that more than one ecoregional strategy will be developed in each 

ecoregion. In 2015, the BLM will continue work with the LCCs as well as the Climate Science 

Centers and other regional partnerships, to complete ongoing regional strategies and begin 

others for REAs completed in 2014.

Land Use Plans: While these regional strategies are being developed, the BLM field offices will 

incorporate assessment information as appropriate into ongoing planning and other resource 

management activities. For example, data from completed REAs is being used to inform the 

multi-State Greater Sage-Grouse planning initiative, to develop a regional mitigation plan for the 

Dry Lake Solar Energy Zone in Nevada, and to identify where National Landscape Conservation 

System units are important for resource protection and conservation within a broader landscape 

context. The BLM Division of Decision Support, Planning, and NEPA has provided guidance on 

the use of REAs and other large-scale assessments for planning purposes, and is developing 

an efficient and adaptive approach to landscape level land use planning in which plans are more 

responsive to changing ecological systems over political and jurisdictional boundaries. This 

effort, referred to as Planning 2.0, facilitates the 

ability to conduct land use planning across 

landscapes. Planning 2.0 will focus the planning 

process on collaborative work with partners at 

different scales to produce highly useful 

decisions that readily address the rapidly 

changing environment and conditions posed by 

the changing climate, rapid growth and 

development and other ecological stressors. 

Projects and Permits: Field implementation puts 

the management strategies into practice through 

existing BLM programs, including the public 

participation and intergovernmental coordination 

opportunities associated with implementation 

planning and environmental impact assessment procedures. Examples of field implementation 

include authorizing land use, constructing facilities, and implementing on-the-ground treatments 

and projects. As a matter of policy, the BLM is committed to using the “mitigation hierarchy” to 

help site and design new developmental projects and focus off-site mitigation in areas with high 

value and high probability of success. 

Healthy Landscapes (HL) is a critical effort to integrate and focus on-the-ground restoration 

projects. The HL effort helps target project dollars from multiple BLM programs, partners 

contributions, and compensatory mitigation to fund conservation and restoration work in 

Information about BLM’s Landscape Approach to 

Managing the Public Lands can be found in the 

following locations: 

 Climate Change: 

http://www.blm.gov/wo/st/en/prog/more/climate

change.html

 Landscape Approach: 

http://www.blm.gov/wo/st/en/prog/more/Landsc

apeApproach.html

 Rapid Ecoregional Assessments (REAs):

http://www.blm.gov/wo/st/en/prog/more/Landsc

ape Approach/reas.html

 Monitoring for Adaptive Management: 

http://www.blm.gov/wo/st/en/prog/more/Landsc

apeApproach/Monitoring_for_Adaptive_Manag

ement.html
2015 Budget Justifications Bureau of Land Management

Page IV - 18 Chapter IV – Crosscutting Programs

identified, cross-jurisdictional, priority areas. For example, HL funds may be combined or 

coordinated with other funds to complete a portfolio of projects in one focus area, such as 

vegetation treatments, travel management planning, Land and Water Conservation Fund 

acquisitions, and applied regional mitigation funds, when each project contributes to the 

objective of conserving intact habitat or defragmenting habitat. Coordinating and focusing 

integrated resource stewardship investments can help to generate benefit, over and above what 

individual programs or mitigation funds could accomplish. Since its inception in 2007, HL has 

supported: more than 1.7 million acres of treatments in New Mexico through the Restore New 

Mexico program; more than 1 million acres of treatments in Utah in partnership with the Utah 

Watershed Initiative; and hundreds of thousands of acres of restoration projects through such 

partnerships as the Wyoming Landscape Conservation Initiative, the Great Basin Restoration 

Initiative and many lesser known projects coordinated at District Office levels. Although exact 

rates vary project to project, the BLM’s HL funds are typically leveraged by at least a 3:1 ratio. 

In 2014, the BLM will identify priority focal areas for 2015-2019 funding. This will set the stage 

for better alignment of Management of Lands and Resources (MLR) restoration investments, 

hazardous fuels program investments, other BLM investments, and non-BLM investments such 

as partnership contributions and regional mitigation funds. The identification of these focal 

areas also will strengthen the BLM’s landscape approach to stewardship activities and will 

directly benefit project level implementation. 

Monitoring for Adaptive Management: Informed decision making and adaptive management 

require current data about the status and trend of terrestrial and aquatic systems and about the 

location and extent of natural and human-caused disturbances. The BLM’s Assessment, 

Inventory, and Monitoring (AIM) Strategy is the framework for this data collection. This strategy 

outlines a process for using core indicators, standardized field methods, remote sensing, and a 

statistically valid study design to provide nationally consistent and scientifically defensible 

information to determine the status of and track changes to natural resources on the public 

lands over time. The AIM Strategy is currently being implemented through five sets of 

interrelated projects. The first three are designed to implement West-wide monitoring that is 

coordinated, and where possible, integrated with the monitoring activities of other Federal, State 

and non-governmental partners. The West-wide projects include the BLM Rangeland 

Assessment, the BLM Western Rivers and Streams Assessment, and the BLM Grass-Shrub 

Fractional Mapping Project. Some of the Federal partners’ included in these efforts are NRCS, 

EPA, USGS, and USFS. The two remaining projects are designed to help support immediate 

multi-State and field office priorities. These projects include efforts to monitor the effectiveness 

of BLM LUPs and to determine the effectiveness of BLM treatments and actions. In 2015, these 

five interrelated monitoring efforts will be implemented to inform the regional mitigation and 

monitoring strategies for the Solar Programmatic EIS and for the Greater Sage-Grouse Planning 

Initiative. 
Bureau of Land Management 2015 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 19

Map of Rapid Ecoregional Assessments and Landscape Conservation Cooperatives – Seven REAs were 

initiated in 2010, followed by two assessments in 2011, and six more started in 2012. Thus, individual REAs are in 

various stages of completion. The Colorado Plateau, Sonoran Desert, Mojave Basin and Range, and Central Basin 

and Range were published in 2013. BLM is planning to release four additional REAs in 2014, six in 2015, and one in 

2016. BLM is coordinating with other agencies and partners to keep the REAs updated and fresh.
2015 Budget Justifications Bureau of Land Management

Page IV - 20 Chapter IV – Crosscutting Programs

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Budget at a Glance 

 

Bureau of Land Management 2015 Budget Justifications

Chapter V – Budget at a Glance Page V - 1

Fixed 

Costs 

Changes

Internal 

Transfers

Program 

Changes

 Requested 

Amount 

Appropriation: Management of Lands and Resources

Soil, Water & Air Management 41,455 42,939 +254 +0 +2,159 45,352

Enhance Core Capability +909

Youth in the Great Outdoors +1,250

Range Management 75,955 79,000 +727 +0 -4,799 74,928

Grazing Permit Issuance/Shift Cost to Fees -4,799

Grazing Administration Management - - +0 +0 +6,500 6,500

Grazing Permit Issuance/Shift Cost to Fees +4,799

Grazing Permit Issuance/New funding through fees +1,701

Grazing Administration Offset - - -6,500 -6,500

Public Domain Forest Management 5,889 9,838 +91 +0 +0 9,929

Riparian Management 21,321 21,321 +191 +0 +1,488 23,000

Cultural Resources Management 15,131 15,131 +127 +0 +742 16,000

Inventory and Site Protection +742

Wild Horse & Burro Management 71,836 77,245 +193 +0 +2,800 80,238

Applied Science - Implementation of NAS Recommendations +2,800

Activity Total, Land Resources 231,587 245,474 +1,583 +0 +2,390 249,447

Wildlife Management 48,606 52,338 +251 +0 +0 52,589

 Fisheries Management 12,530 12,530 +96 +0 +0 12,626

Activity Total, Wildlife & Fisheries Management 61,136 64,868 +347 +0 +0 65,215

Threatened & Endangered Species Management 20,326 21,458 +178 +0 +0 21,636

Budget at a Glance

(dollars in thousands)

2015 President's Budget

 2013 

Actual 

 2014 

Enacted 

(continued)
2015 Budget Justifications Bureau of Land Management

Page V - 2 Chapter V – Budget at a Glance

Fixed 

Costs 

Changes

Internal 

Transfers

Program 

Changes

 Requested 

Amount 

Appropriation: Management of Lands and Resources (Continued)

Wilderness Management 17,300 18,264 +171 +0 +0 18,435

Recreation Resources Management 46,129 48,697 +425 +0 +900 50,022

Enhance Core Capability +900

Activity Total, Recreation Management 63,429 66,961 +596 +0 +900 68,457

Oil & Gas Management 70,877 80,877 +526 +0 -28,220 53,183

Leasing, Oversight and Environmental Studies +4,580

Rulemaking and Reforms +5,200

Decrease Base Funding for inspections/shift cost to fees -38,000

APD Fees 32,500 32,500 +0 +0 +0 32,500

APD Offset -30,946 -32,500 -32,500

Oil & Gas Inspection and Enforcement +0 +0 +48,000 48,000

Funding for inspections/shift cost to fees [+38,000]

New funding through fees [+10,000]

Inspection and Enforcement Offset -48,000 -48,000

Coal Management 7,552 9,595 +85 +0 +0 9,680

Other Mineral Resources Management 8,834 10,586 +98 +0 +0 10,684

Renewable Energy 21,275 29,061 +171 +0 +0 29,232

Activity Total, Energy & Minerals Management 110,092 130,119 +880 +0 -28,220 102,779

(continued)

(dollars in thousands)

Budget at a Glance

 2013 

Actual 

 2014 

Enacted 

2015 President's Budget
Bureau of Land Management 2015 Budget Justifications

Chapter V – Budget at a Glance Page V - 3

Fixed 

Costs 

Changes

Internal 

Transfers

Program 

Changes

 Requested 

Amount 

Appropriation: Management of Lands and Resources (Continued)

Alaska Conveyance 16,568 22,000 +117 +0 -3,117 19,000

Streamline Conveyance Process -3,117

Cadastral Survey 11,276 11,276 +0 -11,276 +0 -

Transfer Cadastral Survey to new subactivity -11,276

Land & Realty Management 34,382 34,382 +0 -34,382 +0 -

Transfer Lands & Realty Management to new subactivity -34,382

Cadastral, Lands & Realty Management [45,658] +424 +45,658 +5,000 51,082

Transfer Cadastral Survey +11,276

Transfer Lands & Realty Management +34,382

Transmission Corridors +5,000

Activity Total, Realty & Ownership Management 62,226 67,658 +541 +0 +1,883 70,082

Communication Site Management 1,898 2,000 +0 +0 +0 2,000

Communication Site Management Offset (1,898) -2,000 -2,000

Budget at a Glance

(dollars in thousands)

 2013 

Actual 

 2014 

Enacted 

2015 President's Budget

(continued)
2015 Budget Justifications Bureau of Land Management

Page V - 4 Chapter V – Budget at a Glance

Fixed 

Costs 

Changes

Internal 

Transfers

Program 

Changes

 Requested 

Amount 

Appropriation: Management of Lands and Resources (Continued)

Resource Management Planning 37,125 37,125 +256 +0 +5,018 42,399

High Priority Planning Efforts +1,208

Applied Science - Enterprise Geospatial System +3,810

Resource Protection & Law Enforcement 25,325 25,325 +153 +0 +179 25,657

Enhance Core Capability +179

Abandoned Mine Lands 16,687 16,687 +75 +0 +2,821 19,583

Red Devil Mine remediation +2,821

Hazardous Materials Management 15,612 15,612 +106 +0 +0 15,718

Activity Total, Resource Prot. & Maint. 94,749 94,749 +590 +0 +8,018 103,357

Deferred Maintenance & Capital Improvements 26,995 26,995 +69 +0 +4,240 31,304

Enhance Core Capability +4,240

Annual Maintenance & Operations Costs 38,637 38,637 +310 +0 +500 39,447

Enhance Core Capability +500

Activity Total, Trans. & Fac. Maintenance 65,632 65,632 +379 +0 +4,740 70,751

Nat'l Monuments & Nat'l Conservation Areas 29,909 31,819 +283 +0 +1,898 34,000

Enhance Core Capability +1,898

Challenge Cost Share 2,413 2,413 +3 +0 +1,163 3,579

Enhance Core Capabilities +1,163

Budget at a Glance

(dollars in thousands)

 2013 

Actual 

 2014 

Enacted 

2015 President's Budget

(continued)
Bureau of Land Management 2015 Budget Justifications

Chapter V – Budget at a Glance Page V - 5

Fixed 

Costs 

Changes

Internal 

Transfers

Program 

Changes

 Requested 

Amount 

Appropriation: Management of Lands and Resources (Continued)

Administrative Support 47,127 47,127 +350 +0 +454 47,931

Enhance Core Capabilities +454

Bureauwide Fixed Costs 87,773 92,901 -1,938 +0 +47 91,010

WCF Indirect Cost Payments +47

Information Technology Management 25,761 25,696 +145 +0 +0 25,841

Activity Total, Workforce & Organizational Support 160,661 165,724 -1,443 +0 +501 164,782

Mining Law Administration 37,677 39,696 +0 +0 +0 39,696

Mining Law Administration Offset -37,677 -39,696 +0 -39,696

Total, Management of Lands & Resources 902,160 956,875 +3,937 +0 -6,727 954,085

Appropriation: Land Acquisition

Land Acquisition 17,977 15,949 +0 +0 +5,531 21,480

Land Acquisition Projects +5,531

Emergencies & Hardships 1,420 1,616 +0 +0 +0 1,616

Acquisition Management 1,778 1,898 +6 +0 +0 1,904

Total, Land Acquisition 21,175 19,463 +6 +0 +5,531 25,000

Budget at a Glance

(dollars in thousands)

 2013 

Actual 

 2014 

Enacted 

2015 President's Budget

(continued)
2015 Budget Justifications Bureau of Land Management

Page V - 6 Chapter V – Budget at a Glance

Fixed 

Costs 

Changes

Internal 

Transfers

Program 

Changes

 Requested 

Amount 

Appropriation: Oregon and California Grant Lands

O&C Construction & Acquisition 293 310 +2 +0 +0 312

O&C Deferred Maintenance 838 - +0 +0 +0

O&C Operations and Annual Maintenance 9,571 10,063 +44 +0 -590 9,517

General Program Decrease -590

Activity Total, Trans. & Facilities Maint. 10,409 10,063 +44 +0 -590 9,517

O&C Forest Management 30,383 33,447 +160 +0 -1,626 31,981

General Program Decrease -1,626 -

O&C Reforestation & Forest Development 22,387 23,851 +91 +0 +0 23,942

O&C Other Forest Resources 34,672 36,985 +140 +0 -4,410 32,715

General Program Decrease -4,410

O&C Resource Management Planning 5,338 7,140 +8 +0 -4,183 2,965

Anticipated Plan Completions -4,183

Activity Total, Resources Management 92,780 101,423 +399 +0 -10,219 91,603

O&C Information & Data Systems 1,822 1,923 +5 +0 -156 1,772

General Program Decrease -156

O&C Nat'l Landscape Conservation System 709 748 +5 +0 +0 753

Total, Oregon & California Grant Lands 106,013 114,467 +455 +0 -10,965 103,957

Budget at a Glance

(dollars in thousands)

 2013 

Actual 

 2014 

Enacted 

2015 President's Budget

(continued)
Bureau of Land Management 2015 Budget Justifications

Chapter V – Budget at a Glance Page V - 7

Fixed 

Costs 

Changes

Internal 

Transfers

Program 

Changes

 Requested 

Amount 

Appropriation: Range Improvements

Public Lands Improvements 8,080 7,590 +0 +0 +589 8,179

Change in available appropriation due to 2014 sequestration - - +0 +0 +589 -

Farm Tenant Act Land Improvements 1,410 1,690 +0 +0 +131 1,821

Change in available appropriation due to 2014 sequestration - - +0 +0 +131 -

Adminstrative Costs [570] [557] +0 +0 [+43] [600]

Total, Range Improvements 9,490 9,280 +0 +0 +720 10,000

TOTAL, DIRECT APPROPRIATIONS 1,038,838 1,100,085 +4,398 +0 -11,441 1,093,042

Notes:

- 2014 amount for Range Improvements includes 7.2% sequester pursuant to Section 254 of the Balanced Budget and Emergency Deficit 

Control Act of 1985, as amended

- Change in Range Improvementsbetween 2014 and 2015 reflects the change in available appropriations between 2014 and 2015 due to 

sequester in 2014, not a request for an increase in appropriated funds

 2013 

Actual 

 2014 

Enacted 

2015 President's Budget

Budget at a Glance

(dollars in thousands)
2015 Budget Justifications Bureau of Land Management

Page V - 8 Chapter V – Budget at a Glance

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Collections 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VI – Collections Page VI - 1

Collections

BLM Collections, 2012-2015 ($000)7

Collection Source 2012 Actual 

Revised8

2013 

Actual

2014 

Estimated

2015 

Estimated9

Sale of Public Lands 22,333 26,331 67,641 89,539

Miscellaneous Filing Fees 34 35 34 34

Mineral Leasing National Grasslands 1,859 1,802 1,810 1,810

Grazing Fees & Land Utilization Project 

Lands 12,888 12,171 12,305 12,255

Timber Sales & Vegetative Material 22,181 27,924 28,510 29,465

Recreational Use Fees 17,142 17,856 18,000 18,500

Earnings on Investments 752 997 0 1,210

Sale of Helium 198,419 203,002 200,762 47,494

Mining Claim & Holding Fees 64,362 65,787 66,138 66,532

Service Charges, Deposits and Forfeitures 32,448 27,802 31,092 32,465

Application for Permit to Drill Fees 33,986 30,946 32,500 32,500

Grazing Administrative Processing Fees 0 0 6,500

Onshore Oil and Gas Lease Inspection 

Fees

0 0 48,000

Other Collections 93,904 91,252 102,208 125,258

Total 500,308 505,906 561,000 511,562

2015 Collections

In 2015, the Bureau of Land Management (BLM) will collect an estimated total of $511.6 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, the Office of the Natural Resources Revenue (ONRR) will collect an estimated $4.1 

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). 

 

7

Totals may not add due to rounding

8

The revision is a correction of the amount of “Other Collections” attributable to revised collections from oil and gas pipeline rightsof-way rents. 

9

The 2015 President’s Budget proposes to impose a $6 per-acre fee on non-producing oil and gas leases, both onshore and on the 

Outer Continental Shelf. The Office of Natural Resources Revenue (ONRR) will collect these revenues and is therefore reporting 

those collections in the ONRR Budget Justification, and they are not included here.
2015 Budget Justifications Bureau of Land Management

Page VI - 2 Chapter VI – Collections

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, 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. The BLM has conducted land sales for thirteen years 

under the authority of this statute. Collections in 2012 and 2013 were $7,767,000 and 

$12,963,000 respectively. Sales in 2014 are projected to produce $51,590,000. The 

increase is mainly due to payments received from a sale in 2013 and projected competitive 

sales of 440-acres. Estimated collections for 2015 are expected to be $66,655,000 mainly 

coming from final payments received from 2014 sales and a modified competitive and direct 

sale of 500 acres. Collections are reported when payments are received regardless of when 

sales are held and the estimates make allowance for the normal lag of 180 days between 

sales and collections. For more information 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 2012 and 2013 were $752,000 and $997,000 respectively. . No interest is estimated to 

be earned in 2014; the estimate for 2015 is $1,210,000. Projected investment earnings take 

into account: (a) revenue from land sales, (b) earnings on investments, and (c) projected 

interest rates and outlays. 

 Federal Land Transaction Facilitation Act (FLTFA) – No receipts were collected from the

sale of land under the FLTFA, Title II of P.L. 106-248 in 2013 because the authority expired 

in July 2011; the unobligated balance was transferred to the Land and Water Conservation 

Fund as required by law. The 2015 Budget includes a proposal to reauthorize FLTFA, and 

allow lands identified as suitable for disposal in current land use plans to be sold using the 

FLTFA authority. FLTFA sales revenues would continue to be used to fund the acquisition 

of environmentally sensitive lands and the administrative costs associated with conducting 

sales. Estimated collections for 2015 are $5,000,000. The Permanent Operating Funds 
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Chapter VI – Collections Page VI - 3

section provides more information on the proposal. Four percent of FLTFA collections are 

paid to the state in which the land is sold. 

 Lincoln County Land Sales – Revenue in the amount of $516,000 was collected in 2013 

from the sale land under the Lincoln County Land Sales Act, P.L. 106-298, as amended. 

Receipts mainly from Coyote Springs sales are estimated to be $1,019,000 and $3,602,000 

in 2014 and 2015, of which five percent and ten percent will be paid to the State and 

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 2012 and 2013 and none is estimated 

to be collected in 2014. Sales in 2015 are estimated to produce $800,000. Four percent of 

those amounts are paid to the State. 

 Washington County, Utah Land Acquisition Account – No revenue was or is estimated 

to be collected in 2013 or 2014 from the sale land under the Washington County, Utah 

Acquisition Account, P.L. 111-11, (Section 1978). Estimated collections in 2015 are 

$100,000. 

 Silver Saddle Endowment Account – No revenue was collected or is estimated to be 

collected in 2012 and in 2013 from the sale land under the Silver Saddle Endowment 

Account, P.L. 111-11, (Section 2601). Estimated collections in 2014 are $375,000. Four 

percent of collections will be paid to the State. No revenue is estimated to be collected in 

2015.

 Carson City Special Account – No revenue was collected in 2012 and in 2013 from the 

sale of land under the Carson City Special Account, P.L. 111-11, (Section 2601). In 2014, 

collections are estimated to be $200,000 of which five percent will be paid to the State. No 

revenue is estimated to be collected in 2015.

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. In addition, the BLM pays 25 percent of 

mineral leasing collections on acquired lands to counties where the collections were generated. 

The BLM continues to collect first-year rentals and initial bonuses from mineral leasing but 

transfers these receipts to ONRR accounts. 

Grazing Fees from Public Lands and Land Utilization Project Lands – This category 

includes all grazing fees collected from public lands and Land Utilization Project lands 

administered by the BLM. It also includes mineral leasing and other receipts from Land 

Utilization Project lands. Grazing fees are collected under the authority of the Taylor Grazing 
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Page VI - 4 Chapter VI – Collections

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 collected $26 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, P.L. 112-141, and P.L. 113-40 expired in 2013, and final 

payments will be made in 2014. (Payments are made in the year following the year for 

which they are authorized.) The Budget proposes a five-year reauthorization of the 

Secure Rural Schools Act with funding through mandatory U.S. Forest Service 

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 2015, the BLM expects 

to offer for sale 25 million board feet of timber products from public domain lands, and 

estimates collections of $2,025,000 in timber sales receipts from public domain lands. 

Collections in 2013 and 2014 were $3,147,000 and $2,550,000 respectively. Collections 

from salvage timber sale on public domain lands were $1,794,000 in 2013 and are 

estimated to be $1,500,000 in 2014 and 2015. 

 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 

2013, the BLM deposited $46,000 to this fund. The authority expired on September 30, 

2013, but was extended by the Agriculture Act of 2014, Public Law No: 113-79. The

BLM estimates deposits will be $40,000 in 2014 and $20,000 in 2015. 

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 2013, 

recreation fee collections were $17,856,000. The BLM anticipates collecting $18,000,000 in 

2014 and $18,500,000 in 2015 under its recreation fee collection authorities. The use of 

Recreation fee collections is described in the Permanent Operating Funds section. Under 

current law, authority for these collections expires in December, 2014. The 2015 Budget 

proposes to permanently extending the authority to collect and spend these fees. 

Naval Oil Shale Reserve – On August 7, 2008, the Secretaries of the Interior and Energy 

certified that sufficient funds 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 2015 Budget Justifications

Chapter VI – Collections Page VI - 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 required the Secretary to offer for sale 

a portion of the Conservation Helium stored underground at the Cliffside Field north of Amarillo, 

Texas. Revenue from sales in 2013 was $203,002,000. That amount was sufficient to pay the 

remaining debt owed to the Treasury, and the authority for the Helium Revolving Fund expired 

after that payment was made. Authority for the helium program was reauthorized by the Helium

Stewardship Act of 2013, P.L. 113-40. Collections from annual sales are projected to be 

$200,762,000 in 2014 and $47,494,000 in 2015. Revenues in excess of the cost of operating 

the helium program will be deposited to the General Fund. Additional information is available in 

the helium program section.

Mining Claim-Related Fees – Authority to collect these fees was initially enacted in the

Department of the Interior and Related Agencies Appropriations Act for 1989 which provided 

that fees established by the Secretary of the Interior for processing actions relating to the 

administration of the General Mining Laws shall be immediately available to BLM for Mining Law 

Administration program operations. 

The Omnibus Budget Reconciliation Act of 1993, P.L. 103-66, (Section 10101) provided for the 

annual $100 per claim maintenance fee for unpatented mining claims and sites to continue 

through 1998. The authority has been modified and extended by Interior appropriations acts. 

The law allows a waiver from the fee for those claimants who hold 10 or fewer claims. The 

authority also established a $25 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 2013 

were $65,787,000 and are estimated to be $66,138,000 in 2014 and $66,532,000 in 2015. 

Additional information is included in the Activity: Mining Law Administration section. 

A $20 processing fee is required for new mining claim locations in addition to the initial 

maintenance fee and location fee. BLM collects this fee under its cost recovery regulations (see 

43 CFR 3000.12). These fees are accounted for separately from the maintenance and location 

fees and therefore are not included in the above total. Additional information is included in the 

Activity: Mining Law Administration section.

Service Charges, Deposits, and Forfeitures – These receipts include revenue from providing 

special program services, such as rights-of-way application processing fees; wild horse and 

burro adoption fees; fees charged to timber sale purchasers when 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 2013 were $26,342,000 and are estimated to be $31,092,000 in 2014 and $32,465,000 in 

2015. 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 when an application for a permit to drill for oil 

and natural gas is submitted. The fee is $6,500 per application. Collections are to be credited 

to the Management of Lands and Resources appropriation. Collections were $33,986,000 in 

2012 and $30,946,000 in 2013. The 2015 President’s Budget proposes to continue one-year 
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Page VI - 6 Chapter VI – Collections

authority to collect these fees, which are estimated at $32,500,000 in 2014 and 2015. For more 

information, please refer to the discussion in the Oil and Gas Management Program. 

Onshore Oil and Gas Lease Inspection Fees – The 2015 Budget includes a new inspection 

fee for onshore oil and gas leases. The fee would support Federal efforts to provide services to

ensure the proper reporting of oil and gas production, protect human safety and the 

environment, and conserve energy resources. These fees will be credited to the Management 

of Lands and Resources appropriation. The estimate for 2015 is $48,000,000. 

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 2015 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 2014 and 2015 also include a planned increase of $11,300,000 and 

$17,350,000 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, are made 

partially from receipts produced in those counties in the preceding year. Over half of the 

amounts paid, however, are derived from an appropriation from the General Fund. Of the total 

of estimated payments of $38.0 million to the western Oregon counties for 2013 in 2014, $20.4 

million is projected to be appropriated from the General Fund. That payment is the final 

payment authorized 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, extended for Fiscal 

Years 2008 through 2011 by Public Law 110-343; and were extended in one-year increments 

for 2012 and 2013 by Public Laws 112-141 and 113-40. As noted above, the 2015 Budget 

reflects a five-year reauthorization of funding through mandatory U.S. Forest Service 

appropriations starting in FY 2014 (with payments to begin in 2015). 
Management of Lands 

and Resources 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 1

Management of Lands and Resources

Appropriations Language

For necessary expenses for protection, use, improvement, development, disposal, cadastral 

surveying, classification, acquisition of easements and other interests in lands, and performance 

of other functions, including maintenance of facilities, as authorized by law, in the management 

of lands and their resources under the jurisdiction of the Bureau of Land Management, including 

the general administration of the Bureau, and assessment of mineral potential of public lands 

pursuant to section 1010(a) of Public Law 96–487 (16 U.S.C. 3150(a)), 

[$956,875,000]$954,085,000, to remain available until expended; of which $3,000,000 shall be 

available in fiscal year [2014]2015 subject to a match by at least an equal amount by the 

National Fish and Wildlife Foundation for cost-shared projects supporting conservation of 

Bureau lands; and such funds shall be advanced to the Foundation as a lump-sum grant without 

regard to when expenses are incurred. 

In addition, $32,500,000 is for the processing of applications for permit to drill and related use 

authorizations, to remain available until expended, to be reduced by amounts collected by the 

Bureau and credited to this appropriation that shall be derived from a fee of $6,500 per new 

application for permit to drill that the Bureau shall collect upon submission of each new 

application, and, in addition, $48,000,000 is for conducting oil and gas inspection activities, to 

remain available until expended, to be reduced by amounts collected by the Bureau and 

credited to this appropriation that shall be derived from onshore oil and gas inspection fees that 

the Bureau shall collect, as provided for in this Act, and, in addition, $6,500,000 is for the 

processing of grazing permits and leases, to remain available until expended, to be reduced by 

amounts collected by the Bureau and credited to this appropriation, which shall be derived by a 

$1.00 per animal unit month administrative fee, as provided for in this Act, and, in addition, 

$39,696,000 is for Mining Law Administration program operations, including the cost of 

administering the mining claim fee program, to remain available until expended, to be reduced 

by amounts collected by the Bureau and credited to this appropriation from mining claim 

maintenance fees and location fees that are hereby authorized for fiscal year [2014] 2015, so as 

to result in a final appropriation estimated at not more than [$956,875,000] $954,085,000, 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, 2014)

Justification of Proposed Language Changes

All changes are based on the Department of the Interior, Environment, and Related Agencies 

Appropriations Act, 2014.

1. $48,000,000 is for conducting oil and gas inspection activities, to remain available until 

expended, to be reduced by amounts collected by the Bureau and credited to this 

appropriation that shall be derived from onshore oil and gas inspection fees that the

Bureau shall collect, as provided for in this Act,

This provision authorizes the BLM to spend revenues generated by new fees to be 

assessed 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 $48,000,000 in fee collections on inspection 
2015 Budget Justifications Bureau of Land Management

Page VII - 2 Chapter VII – Management of Lands and Resources

activities, regardless of the amount actually collected. The fee schedule is located in 

Section 113 of the General Provisions.

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 proposed fee authority is 

located in Section 410 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.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 3

Authorizations

General Authorizing Legislation - The following authorize the general activities of the Bureau 

of Land Management or govern the manner in which BLM’s activities are conducted.

Reorganization Plan No. 

3 of 1946, §403

Establishes the BLM

Federal Land Policy and 

Management Act of 

1976, as amended (43 

U.S.C. 1701 et seq.)

Outlines functions of the BLM, provides for administration of 

public lands through the BLM, provides for management of the 

public lands on a multiple-use basis, and requires land-use 

planning including public involvement and a continuing inventory 

of resources. The Act establishes as public policy that, in 

general, the public lands will remain in Federal ownership, and 

also authorizes: 

• Acquisition of land or interests in lands consistent with the 

mission of the Department and land use plans; 

• Permanent appropriation of road use fees collected from 

commercial road users, to be used for road maintenance;

• Collection of service charges, damages, and contributions 

and the use of funds for specified purposes;

• Protection of resource values;

• Preservation of certain lands in their natural condition;

• Compliance with pollution control laws;

• Delineation of boundaries in which the Federal government 

has right, title, or interest;

• Review of land classifications in land use planning; and 

modification or termination of land classifications when 

consistent with land use plans;

• Sale of lands if the sale meets certain disposal criteria;

• Issuance, modification, or revocation of withdrawals;

• Review of certain withdrawals by October 1991;

• Exchange or conveyance of public lands if in the public 

interest;

• Outdoor recreation and human occupancy and use;

• Management of the use, occupancy, and development of the 

public lands through leases and permits; 

• Designation of Federal personnel to carry out law 

enforcement responsibilities;

• Determination of the suitability of public lands for rights-ofway purposes (other than oil and gas pipelines) and 

specification of the boundaries of each right-of-way;

• Recordation of mining claims and reception of evidence of 

annual assessment work.
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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 

Management Act of 

1992 (P.L. 107-69)

Provides for the security of dams, facilities and resources under 

the jurisdiction of the Bureau of Reclamation. Authorizes the 

Secretary of the Interior to authorize law enforcement personnel 

from the Department of the Interior to enforce Federal laws and 

regulations within a Reclamation Project or on Reclamation 

lands.

The Civil Service 

Reform Act of 1978 (5 U. 

S. C. 1701)

Requires each executive agency to conduct a continuing 

program to eliminate the under-representation of minorities and 

women in professional, administrative, technical, clerical, and 

other blue-collar employment categories within the Federal 

services.

The Civil Rights Act of 

1964, as amended (42 

U.S.C. 2000)

Requires development and maintenance of affirmative action 

programs to ensure non-discrimination in any employment 

activity.

The Paperwork 

Reduction Act of 1980 

(44 U.S.C. 3501-3520)

Provides national Federal information policy, and requires that 

automatic data processing and telecommunication technologies 

be acquired and used to improve services, delivery, and 

productivity, and to reduce the information-processing burden for 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 5

the Federal government and the 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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Page VII - 6 Chapter VII – Management of Lands and Resources

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 
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Chapter VII – Management of Lands and Resources Page VII - 7

Sandy River as part of the Bull Run Watershed Management 

Unit, Oregon, and adds responsibilities for the Secretary of 

the Interior and the Bureau of Land Management.

 Range Management

Taylor Grazing Act of 

1934 (43 U.S.C. 315), as 

amended by the Act of 

August 28, 1937 (43 

U.S.C. 1181d)

Authorizes the establishment of grazing districts, regulation 

and administration of grazing on the public lands, and 

improvement of the public rangelands. It also authorizes the 

Secretary 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 wildlandurban interface areas and on certain other federal lands using 

expedited procedures.

Forest Ecosystem 

Health & Recovery Fund 

(P.L. 102-381)

The initial purpose of this fund was to allow quick response to 

fire and reforestation of forests damaged by insects, disease, 

and fire. Expanded authorization in the 1998 Interior and 

Related Agencies Appropriations Act allows activities 

designed to reduce the risk of catastrophic damage to forests 

in addition to responding to damage events. Funds in this 

account are derived from the Federal share (defined as the 

portion of receipts not paid to the counties under 43 U.S.C. 

1181f and 43 U.S.C. 1181-1 et seq., and P.L. 106-393) of 

receipts from all BLM timber salvage sales and all BLM forest 

health restoration treatments funded by this account. The 
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Page VII - 8 Chapter VII – Management of Lands and Resources

authority to make deposits and to spend from this fund was 

provided in the 2010 Interior Appropriations Act (P.L. 111-88, 

123 STAT. 2906) and expires at the end of fiscal year 2015. 

Sec. 347 of Public Law 

105-277, as amended by 

Public Law 108-7 and 

Public Law 113-79

Permanently authorizes the Bureau of Land Management, via 

agreement or contract as appropriate, to enter into 

stewardship contracting projects with private persons or other 

public or private entities to perform services to achieve land 

management goals for the national forests and the public 

lands that meet local and rural community needs. 

 Riparian Management

The Federal Noxious 

Weed Act of 1974, as 

amended (7 U.S.C. 

2814)

Provides for the designation of a lead office and a person 

trained in the management of undesirable plants; 

establishment and funding of an undesirable plant 

management program; completion and implementation of 

cooperative agreements with State agencies; and 

establishment of integrated management systems to control 

undesirable plant species.

Noxious Weed Control 

Act of 2004 (P.L. 108-

412)

Establishes a program to provide assistance through States 

to eligible weed management entities to control or eradicate 

harmful, nonnative weeds on public and private lands.

Carlson-Foley Act of 

1968 (42 U.S.C. 

1241-1243)

Authorizes BLM to reimburse States for expenditures 

associated with coordinated control of noxious plants.

 Cultural Resources Management

P.L. 107-346 To convey certain property to the City of St. George, Utah, in 

order to provide for the protection and preservation of certain 

rare paleontological resources on that property, and for other 

purposes.

The Federal Cave 

Resource Protection 

Act of 1988 (16 U.S.C. 

4301)

Provides for the protection of caves on lands under the 

jurisdiction of the Secretary, and the Secretary of Agriculture. 

Establishes terms and conditions for use permits, and 

penalties for violations. 

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 
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Chapter VII – Management of Lands and Resources Page VII - 9

National Register of Historic Places.

The Archaeological 

Resources Protection 

Act of 1979, as 

amended (16 U.S.C. 

470a, 470cc and 470ee)

Requires permits for the excavation or removal of Federally 

administered archaeological resources, encourages 

increased cooperation among Federal agencies and private 

individuals, provides stringent criminal and civil penalties for 

violations, and requires Federal agencies to identify important 

resources vulnerable to looting and to develop a tracking 

system for violations.

The Chacoan Culture 

Preservation Act of 

1980 (16 U.S.C. 410; ii)

Provides for preservation, protection, research, and 

interpretation of the Chacoan system, including 33 

archaeological protection sites, located throughout the San 

Juan Basin on public, State, Indian and private lands.

The Native American 

Graves Protection and 

Repatriation Act of 1990 

(25 U.S.C. 3001)

Requires agencies to inventory archaeological and 

ethnological collections in their possession or control (which 

includes non-federal museums) for human remains, 

associated funerary objects, sacred objects, and objects of 

cultural patrimony; identify them geographically and culturally; 

and notify appropriate tribes within 5 years.

Galisteo Basin (New 

Mexico) Archaeological 

Sites Protection Act 

(P.L. 108-208)

Authorizes the Secretary of the Interior to administer the 

designated sites under this Act and other laws to protect, 

preserve, provide for research on, and maintain these 

archaeological resources.

 Wild Horse and Burro Management

Wild Free-Roaming 

Horse and Burro Act of 

1971 (P.L. 92-195), as 

amended

The Secretary is authorized and directed to protect and 

manage wild free-roaming horses and burros as components 

of the public lands, and he may designate and maintain 

specific ranges on public lands as sanctuaries for their 

protection and preservation, where the Secretary after 

consultation with the wildlife agency of the State wherein any 

such range is proposed and with the Advisory Board 

established in section 7 of this Act deems such action 

desirable. The Secretary shall manage wild free-roaming 

horses and burros in a manner that is designed to achieve 

and maintain a thriving natural ecological balance on the 

public lands.

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 
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Page VII - 10 Chapter VII – Management of Lands and Resources

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 to

achieve appropriate management levels. Such action shall 

be taken until all excess animals have been removed to

restore a thriving natural ecological balance to the range, and 

protect the range from the deterioration associated with 

overpopulation.

The Secretary shall cause such number of additional excess 

wild free-roaming horses and burros to be humanely captured 

and removed for private maintenance and care for which he 

determines an adoption demand exists by qualified 

individuals, and for which he determines he can assure 

humane treatment and care (including proper transportation, 

feeding, and handling).

 Wildlife Management

National Fish and 

Wildlife Foundation 

Establishment Act, as 

amended, (16 U.S.C. 

3701)

Established the National Fish and Wildlife Foundation as a 

nonprofit corporation to encourage, accept and administer 

private gifts of property, and to undertake activities to further 

the conservation and management of fish, wildlife, and plant 

resources of the U.S.

The Migratory Bird 

Conservation Act of 

1929, as amended (16 

U.S.C. 715) and treaties 

pertaining thereto

Provides for habitat protection and enhancement of protected 

migratory birds.

The Sikes Act of 1974, 

as amended (16 U.S.C. 

670 et seq.)

Provides for the conservation, restoration, and management 

of species and their habitats in cooperation with State wildlife 

agencies.

Wilderness Management

Defense Department FY 

2006 Authorization Bill 

(P.L. 109-63)

Provides for the designation and management of Cedar 

Mountain Wilderness in Utah.

Tax Relief and Health 

Care Act of 2006

Designates wilderness in White Pine County, Nevada.
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Chapter VII – Management of Lands and Resources Page VII - 11

Otay Mountain 

Wilderness Act of 1999

Establishes the Otay Mountain Wilderness Area in California, 

to be managed by the Secretary, acting through the Director 

of the Bureau of Land Management.

Clark County 

Conservation of Public 

Land and Natural 

Resources Act of 2002 

(P.L. 107-282) (16 USC 

460qqq)

Establishes Wilderness Areas, including Sloan Canyon 

National Conservation Area, and to promote conservation, 

improve public land, and provide for high quality development 

in Clark County, Nevada, and for other purposes.

Ojito Wilderness Act 

(P.L. 109-94)

Designates New Mexico’s Ojito Wilderness Study Area as 

wilderness, to take certain land into trust for the Pueblo of Zia, 

and for other purposes.

P.L. 107-361 Authorizes the Secretary of the Interior to convey certain

public lands within the Sand Mountain Wilderness Study Area 

in Idaho to resolve an occupancy encroachment dating back 

to 1971.

Northern California 

Coastal Wild Heritage 

Wilderness Act (P.L. 

106-362)

Provides for the designation and management of Wilderness 

Areas in California.

Big Sur Wilderness and 

Conservation Act of 

2002 (P.L. 107-370)

Designates certain lands in the State of California as 

components of the National Wilderness Preservation System, 

and for other purposes.

Utah West Desert Land 

Exchange Act of 2000 

(P.L. 106-301)

Authorizes exchange of public lands for certain lands owned 

by the State of Utah within existing and proposed Wilderness 

Study Areas in the West Desert Region of Utah.

The Land Use Planning 

Act (P. L. 94-579), as 

amended by the 

California Desert 

Protection Act of 1994 

(P.L. 103-433) (43 USC 

1781)

Establishes boundaries and management responsibilities for 

areas in the California Desert, and establishes 69 new 

Wilderness Areas.

The Wilderness Act of 

1964 (16 U.S.C. 1131 et 

seq.)

Provides for the designation and preservation of Wilderness 

Areas.
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Page VII - 12 Chapter VII – Management of Lands and Resources

 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.
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Reorganization Plan No. 

3 of 1946, §402 (60 Stat. 

1099)

Transferred mineral leasing functions to the Secretary, from 

the Secretary of Agriculture, for certain acquired lands.

The Interior and Related 

Agencies 

Appropriations Act for 

1981 (42 U.S.C. 6508)

Provides for competitive leasing of oil and gas in the National 

Petroleum Reserve in Alaska.

The 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.
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Page VII - 14 Chapter VII – Management of Lands and Resources

Other Mineral Resources

Mineral Materials Act of 

1947 (30 U.S.C. 601)

Authorizes the BLM to sell sand, gravel, crushed stone, clay 

and pumice at fair market value and to grant free-use permits 

to Government agencies and nonprofit organizations, so long 

as public land resources, the environment and the public are 

protected.

The Multiple Surface 

Use Act (30 U.S.C. 611) 

Specified that sand, gravel, and certain other minerals were 

no longer locatable under the General Mining Law of 1872 but 

were subject to disposal by sale under the Materials Act of 

1947.

 Alaska Conveyance

The Alaska Native 

Claims Settlement Act 

of 1971 (ANCSA) (43 

U.S.C. 1612)

Requires the survey of Alaska Native lands for conveyance to 

Native corporations and individuals.

The Alaska Statehood 

Act, as amended (48 

U.S.C. Chap. 2 note)

Requires the survey of lands for conveyance to the State.

The Alaska National 

Interest Lands 

Conservation Act of 

1980 (16 U.S.C. 3101 et 

seq.)

Provides for the designation and conservation of certain 

public lands in Alaska. BLM responsibilities include six Wild 

and Scenic Rivers, nine study rivers, one National 

Conservation Area, one National Recreation Area, and one 

National Scenic Highway.

Alaska Native Allotment 

Subdivision Act (P.L. 

108-337)

Allows Native Alaskans to subdivide their restricted allotment 

lands with the approval of the Secretary of the Interior.

Alaska Land 

Acceleration Act of 

2003 (P.L. 108-452)

Reduces the delays that exist in the adjudication and 

conveyance of Alaska Native Allotments, State and other land 

entitlements that are authorized under the Alaska Native 

Allotment Act of 1906, the Alaska Native Claims Act, and the 

Alaska Statehood Act.

43 U.S.C. 2 Provides that the Secretary shall perform all executive duties 

pertaining to the surveying and sale of public lands, private 

claims of public lands, and the issuing of patents for all grants 

of land under the authority of the Government.

43 U.S.C. 52 Provides that the Secretary shall cause all public lands to be 

surveyed and monumented, that all private land claims shall 

be surveyed after they have been confirmed, and that the 

Secretary shall transmit plats of all lands surveyed to such 

officers as he may designate.
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 Cadastral Survey

Executive Order 12906 The executive branch is developing, in cooperation with State, 

local, and tribal governments, and the private sector, a 

coordinated National Spatial Data Infrastructure to support 

public and private sector applications of geospatial data. BLM 

is charged with developing data standards, ensuring the 

capability to share cadastral data from the Public Land Survey 

System of the U.S. with partners.

 Lands & Realty

Native American 

Technical Corrections 

Act of 2004 (P.L. 108-

204, Title II)

Placed in trust for the Pueblo of Santa Clara in New Mexico 

approximately 2,484 acres of BLM-managed land. Placed in 

trust for the Pueblo of San Ildefonso in New Mexico 

approximately 2,000 acres of BLM-managed land.

P.L. 107-374 Direct the Secretary of the Interior to grant to Deschutes and 

Crook Counties, Oregon, a right-of-way to West Butte Road.

P. L. 109-46 Directs the Secretary of Agriculture to convey certain land to 

Lander County, Nevada, and the Secretary of Interior to 

convey certain land to Eureka County, Nevada, for continued 

use of cemeteries.

P. L. 109-69 Directs the Secretary of the Interior to convey certain land in 

Washoe County, Nevada, to the Board of Regents of the 

University and Community College System of Nevada.

P. L. 109-130 Directs the Secretary of the Interior to convey a parcel of real 

property to Beaver County, Utah.

Southern Nevada Public 

Land Management Act 

of 1998 (P.L. 105-263)

Authorizes the disposal through sale of 27,000 acres in Clark 

County, Nevada, the proceeds of which are distributed as 

follows: (a) 5 percent for use in the general education 

program of the State of Nevada; (b) 10 percent for use by 

Southern Nevada Water Authority for water treatment and 

transmission facility infrastructure in Clark County, Nevada; 

and (c) the remaining 85 percent to be used to acquire 

environmentally sensitive lands in Nevada; to make capital 

improvements to areas administered by NPS, FWS and BLM 

in Clark County, Nevada; to develop a multi-species habitat 

plan in Clark County, Nevada; to develop parks, trails, and 

natural areas in Clark County, Nevada; and to provide 

reimbursements for BLM costs incurred in arranging sales 

and exchanges under this Act.

Clark County 

Conservation of Public 

Enlarges the area in which the BLM can sell lands under the 

Southern Nevada Public Land Management Act; approves a 
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Page VII - 16 Chapter VII – Management of Lands and Resources

Land and Natural 

Resources Act of 2002 

(P.L. 107-282) as 

amended by P.L. 108-

447

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, 

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.
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Chapter VII – Management of Lands and Resources Page VII - 17

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.

The Airport and Airway 

Improvement Act of 

1982 (49 U.S.C. 2215)

Authorizes conveyance of lands to public agencies for use as 

airports and airways.

The Engle Act of 

February 28, 1958 (43 

U.S.C. 156)

Provides that withdrawals for the Department of Defense for 

more than 5,000 acres shall be made by Congress.

The Recreation and Authorizes the Secretary to classify public lands for lease or 
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Page VII - 18 Chapter VII – Management of Lands and Resources

Public Purposes Act of 

1926, as amended (43

U.S.C. 869)

sale for recreation or public purposes.

The R&PP Amendment 

Act of 1988

Provides that suitable public lands may be made available for 

use as solid waste disposal sites, in a manner that will protect 

the U.S. against unforeseen liability.

The Desert Land Act of 

1877 (43 U.S.C. 321-323)

Provides authority to reclaim arid and semi-arid public lands 

of the western States through individual effort and private 

capital.

The Act of August 30, 

1949, as amended (43 

U.S.C. 687(b))

Authorizes the Secretary to dispose of public lands, and 

certain withdrawn Federal lands in Alaska, that are classified 

as suitable for housing and industrial or commercial purposes.

The Utah School Lands 

Act (P.L. 103-93)

Authorizes the Secretary to enter into land exchanges for 

certain purposes.

Federal Land Exchange 

Facilitation Act of 1988 

(43 U.S.C. 1716)

Amends FLPMA to provide for the streamlining of Federal 

land exchange procedures.

The Arkansas-Idaho 

Land Exchange Act of 

1992 (P.L. 102-584)

Authorizes the Secretary to enter into land exchanges for 

certain purposes.

 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 

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.
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Chapter VII – Management of Lands and Resources Page VII - 19

Reauthorization Act of 

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.
2015 Budget Justifications Bureau of Land Management

Page VII - 20 Chapter VII – Management of Lands and Resources

Arizona Desert 

Wilderness Act of 1990 

– Title II – Designation 

of the Gila Box Riparian 

National Conservation 

Area (P.L. 101-628) (16 

USC 460ddd)

Establishes the Gila Box Riparian National Conservation 

Area. The Secretary of the Interior shall manage the 

monument through the Bureau of Land Management.

The Snake River Birds 

of Prey National 

Conservation Area Act 

of 1993 (P.L. 103-64) (16 

USC 460iii)

Establishes the Snake River Birds of Prey National 

Conservation Area, Idaho, to provide for the conservation, 

protection, and enhancement of raptor populations, habitats, 

and associated natural resources and of the scientific, 

cultural, and educational resources of the public lands. 

Requires the Secretary of the Interior to finalize a new 

comprehensive management plan for the Area. Authorizes 

the Secretary, acting through the Bureau of Land 

Management, to establish a visitor’s center to interpret the 

history and geological, ecological, natural, cultural and other 

resources of the Area and biology of the raptors and their 

relationships to humans.

An Act to Establish the 

Red Rock Canyon 

National Conservation 

Area in Nevada (P.L. 

101-621) as amended by 

107-282 (16 U.S.C. 

460ccc)

Provides for the conservation, protection, and enhancement 

of cultural and natural resources values by the BLM within the 

Red Rock Canyon National Conservation Area.

An Act to Establish the 

El Malpais National 

Monument and the El 

Malpais National 

Conservation Area in 

New Mexico, P.L. 100-

225 (16 U.S.C. 460uu 21)

Provides for the protection and management of natural and 

cultural resource values within the El Malpais National 

Conservation Area by the BLM.

An Act to Provide for 

the Designation and 

Conservation of Certain 

Lands in Arizona and 

Idaho(P.L. 100-696) (16 

U.S.C. 460xx)

Establishes the San Pedro Riparian National Conservation 

Area in Arizona and provides for management and 

development for recreation and other multiple-use purposes.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 21

Black Canyon of the 

Gunnison National Park 

and Gunnison Gorge 

National Conservation 

Area Act of 1999 (6 USC 

410fff), as amended (PL 

106-76 & 108-128)

Establishes the Gunnison Gorge National Conservation Area 

to be managed by the Secretary, acting through the Director 

of the Bureau of Land Management. PL 108-128 amended 

the boundaries or the National Conservation Area.

Black Rock Desert/High 

Rock Canyon Emigrant 

Trails National 

Conservation Area Act 

of 2000, as amended, 

(P.L. 106-554 & P.L. 107-

63). (16 U.S.C. 460ppp) 

Establishes the Black Rock Desert/High Rock Canyon 

Emigrant Trails National Conservation Area in Nevada, to be 

managed by the Secretary, acting through the Director of the 

Bureau of Land Management.

Colorado Canyons 

National Conservation 

Area and Black Ridge 

Canyon Wilderness Act 

of 2000 (16 U.S.C. 

460mmm, P.L. 106-353 ), 

as amended by P.L. 

108-400 (43 USC 

460mmm)

Establishes the McInnis Canyons National Conservation Area 

(formerly Colorado Canyons National Conservation Area) and 

Black Ridge Canyon Wilderness Area in Colorado, to be 

managed by the BLM.

Las Cienegas National 

Conservation Area Act 

(P.L. 106-538) (16 U.S.C. 

460ooo) 

Establishes the Las Cienegas National Conservation Area in 

Arizona, to be managed by the Secretary, acting through the 

Director of the Bureau of Land Management.

Santa Rosa and San 

Jacinto Mountains 

National Monument Act 

of 2000 (P.L. 106-351) 

(16 U.S.C. 431)

Establishes the Santa Rosa and San Jacinto Mountains 

National Monument in California, to be managed by the 

Secretary, acting through the Director of the Bureau of Land 

Management.

Steens Mountain 

Cooperative 

Management and 

Protection Act of 2000 

(P.L. 106-399) (16 U.S.C. 

460nnn)

Establishes the Steens Mountain Cooperative Management 

and Protection Area in Oregon, to be managed by the 

Secretary, acting through the Director of the Bureau of Land 

Management.

Presidential 

Proclamation 6920 of 

1996

Established the Grand Staircase - Escalante National

Monument, to be managed by the Secretary of the Interior, 

acting through the Director of the Bureau of Land 

Management. 
2015 Budget Justifications Bureau of Land Management

Page VII - 22 Chapter VII – Management of Lands and Resources

Presidential 

Proclamation 7265 of 

2000

Established the Grand Canyon - Parashant National 

Monument. The Secretary of the Interior shall manage the 

monument through the Bureau of Land Management and the 

National Park Service. The Bureau of Land Management 

shall have primary management authority for those portions of 

the Monument outside of the Lake Mead National Recreation 

Area. 

Presidential 

Proclamation 7264 of 

2000

Presidential 

Proclamation 7263 of 

2000

Established the California Coastal National Monument. The 

Secretary of the Interior shall manage the monument through 

the Bureau of Land Management.

Established the Agua Fria National Monument. The 

Secretary of the Interior shall manage the monument through 

the Bureau of Land Management.

P.L. 107-213 Re-designate certain lands within the Craters of the Moon 

National Monument, and for other purposes.

The Wild and Scenic 

Rivers Act of 1968, as 

amended (16 U.S.C. 

1271 et seq.)

Provided for the development and management of certain 

rivers. Authorized the Secretary to exchange or dispose of 

suitable Federally-owned property for non-Federal property 

within the authorized boundaries of any Federallyadministered component of the National Wild and Scenic 

Rivers System.

The National Trails 

System Act of 1968, as 

amended (16 U.S.C. 

1241-1249)

Established a national trails system and requires that Federal 

rights in abandoned railroads be retained for trail or recreation 

purposes, or sold with the receipts to be deposited in the 

LWCF.

The National Parks and 

Recreation Act of 1978 

(16 U.S.C. 1242-1243)

Established a number of national historic trails which cross 

public lands.

Old Spanish Trail 

Recognition Act of 2002 

(P.L. 107-325)

A bill to amend the National Trails System Act to designate 

the Old Spanish Trail as a National Historic Trail.

Presidential 

Proclamation 8803 of 

2012 

Established the Fort Ord National Monument. 

Presidential 

Proclamation 8946 of 

2013

Established the Rio del Norte National Monument. 

Presidential 

Proclamation 8947

Established the San Juan Islands National Monument.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 23

Mining Law Administration

The Omnibus Budget 

Reconciliation Act of 

1993 (P.L. 103-66)

Establishes an annual $100 per claim maintenance fee for 

unpatented mining claims and sites through 1998 and 

requires that the fee be adjusted for inflation. The law allows 

a waiver from the fee for those claimants who hold 10 or 

fewer claims. It also establishes a $25 per claim location fee 

for new claims, to be paid when they are recorded with BLM. 

The Act also broadened the BLM’s authority to collect 

recreation use fees.

The General Mining Law 

of 1872, as amended (30 

U.S.C. 22, et seq.), as 

amended by P.L. 108-

447, Division E, Section 

120, (30 U.S.C. 23 et 

seq.)

Provides for locating and patenting mining claims where a 

discovery has been made for locatable minerals on public 

lands in specified States, mostly in the western U.S.

The Act of March 3, 

1879, as amended, (43 

U.S.C. 31(a))

Provides for the inventory and classification of the public 

lands, and examination of the mineral resources and products 

of the national domain.

The Mining and 

Minerals Policy Act of 

1970, (30 U.S.C. 21a) (30 

U.S.C. 1601, et seq.)

Sets out the policy of fostering development of economically 

stable mining and mineral industries, and studying methods 

for waste disposal and reclamation.

The Department of the 

Interior and Related 

Agencies 

Appropriations Act for 

1989 (43 U.S.C. 1474)

Provides that receipts for 1989 and thereafter from 

administrative fees (service charges) established by the 

Secretary for processing actions relating to the administration 

of the General Mining Laws shall be immediately available to 

BLM for mining law administration program operations.

The 1994 Interior and 

Related Agencies 

Appropriations Act (P.L. 

103-138)

Provides that funds shall be available to BLM for mining law 

administration program operations, to be reduced by amounts 

collected from annual mining claim fees. 

The 1999 Interior and 

Related Agencies 

Appropriations Act 

( P.L. 105-277)

Reauthorizes the collection of annual mining claim maintenance 

fees through 2001. Extends the recreation fee demonstration 

program through fiscal year 2001, with collected funds remaining 

available through fiscal year 2004.

The 2002 Interior and 

Related Agencies 

Appropriations Act ( P.L. 

107-63)

Reauthorizes the collection of annual mining claim maintenance 

fees through 2003. Extends the recreation fee demonstration 

program through fiscal year 2004, with collected funds remaining 

available through fiscal year 2007.
2015 Budget Justifications Bureau of Land Management

Page VII - 24 Chapter VII – Management of Lands and Resources

 Other Authorizations

The Food Security Act of 

1985 (7 U.S.C. 148f)

Provides for the transfer of funds to the Secretary of Agriculture for 

Mormon cricket and grasshopper control.

Indian Self Determination 

And Education Assistance 

Act (P.L. 93-638)

Provides for non-competitive contracts, grants, or cooperative 

agreements entered into between a tribal organization and the 

Federal government for the planning, conduct, and administration of 

programs which enhance Indian educational achievement or 

provide other Federal services more responsive to the needs and 

desires of those communities.

Oregon Land Exchange 

Act of 2000 (P.L. 106-257)

Authorizes exchange of specified parcels of public and national 

forest lands in Oregon for specified parcels of private lands.

P.L. 109-127 Revokes a Public Land Order with respect to certain lands 

erroneously included in the Cibola National Wildlife Refuge, 

California.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 25

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Land Resources

Soil, Water & Air Management 227 41,455 227 42,939 +254 - +0 - +2,159 227 45,352 +0 +2,413 

Rangeland Management 670 75,955 675 79,000 +727 - +0 -35 -4,799 640 74,928 -35 -4,072 

Grazing Administration Management - - - - +0 - +0 +50 +6,500 50 6,500 +50 +6,500 

Grazing Administration Management Offset - - +0 +0 -6,500 -6,500 +0 -6,500 

Public Domain Forest Mgmt 48 5,889 81 9,838 +91 - +0 - +0 81 9,929 +0 +91 

Riparian Management 171 21,321 169 21,321 +191 - +0 +2 +1,488 171 23,000 +2 +1,679 

Cultural Resources Mgmt 116 15,131 114 15,131 +127 - +0 - +742 114 16,000 +0 +869 

Wild Horse & Burro Mgmt 185 71,836 173 77,245 +193 - +0 - +2,800 173 80,238 +0 +2,993 

Total, Land Resources 1,417 231,587 1,439 245,474 +1,583 - +0 +17 +2,390 1,456 249,447 +17 +3,973 

Wildlife & Fisheries

Wildlife Management 232 48,606 225 52,338 +251 - +0 - +0 225 52,589 +0 +251 

Fisheries Management 87 12,530 86 12,530 +96 - +0 - +0 86 12,626 +0 +96 

Total, Wildlife & Fisheries 319 61,136 311 64,868 +347 - +0 - +0 311 65,215 +0 +347 

Threatened & Endangered Species 154 20,326 159 21,458 +178 - +0 - +0 159 21,636 +0 +178 

Recreation Management

Wilderness Management 151 17,300 155 18,264 +171 - +0 - 2 +0 153 18,435 -2 +171 

Recreation Resources Management 380 46,129 386 48,697 +425 - +0 - 6 +900 380 50,022 -6 +1,325 

Total, Recreation Management 531 63,429 541 66,961 +596 - +0 - 8 +900 533 68,457 -8 +1,496 

Energy & Minerals Management

Oil & Gas Management 590 70,877 627 80,877 +526 - +0 -112 -28,220 515 53,183 -112 -27,694 

Oil & Gas Permit Processing 292 32,500 317 32,500 +0 - +0 - 2 +0 315 32,500 -2 +0 

Oil & Gas Offsetting Permit Processing Offsetting Collection (30,946) (32,500) +0 +0 +0 (32,500) +0 +0 

Onshore Oil & Gas Inspection and Enforcement - - - - +0 - +0 +196 +48,000 196 48,000 +196 +48,000 

Onshore Oil & Gas Inspection & Enforcement Offsetting Collections - - +0 +0 -48,000 (48,000) +0 -48,000 

Coal Management 60 7,552 76 9,595 +85 - +0 - +0 76 9,680 +0 +85 

Other Mineral Resources 74 8,834 88 10,586 +98 - +0 - +0 88 10,684 +0 +98 

Renewable Energy 141 21,275 153 29,061 +171 - +0 - +0 153 29,232 +0 +171 

Total, Energy & Minerals Management 1,157 110,092 1,261 130,119 +880 - +0 +82 -28,220 1,343 102,779 +82 -27,340 

2014 Enacted Fixed 

Cost

 Program Changes 

 Requested 

 Transfers Amount 

2015 President's Budget

 Change from 2014 

Enacted 

(dollars in thousands)

Summary of Requirements

2013 Actual

(continued)
2015 Budget Justifications Bureau of Land Management

Page VII - 26 Chapter VII – Management of Lands and Resources

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Realty & Ownership Management

Alaska Conveyance 125 16,568 105 22,000 +117 - +0 - -3,117 105 19,000 +0 -3,000 

Cadastral Survey 88 11,276 87 11,276 +0 -87 -11,276 - +0 - - -87 -11,276 

Land & Realty Management 299 34,382 292 34,382 +0 -292 -34,382 - +0 - - -292 -34,382 

Cadastral, Lands & Realty Mgmt - - - - +424 +379 +45,658 - +5,000 379 51,082 +379 +51,082 

Total, Realty & Ownership Management 512 62,226 484 67,658 +541 - +0 - +1,883 484 70,082 +0 +2,424 

Communication Site Management 16 1,898 19 2,000 +0 - +0 - 1 +0 18 2,000 -1 +0 

Offsetting Collections (1,898) (2,000) +0 +0 +0 (2,000) +0 

Resource Protection & Maintenance

Resource Mgmt Planning 229 37,125 226 37,125 +256 - +0 +3 +5,018 229 42,399 +3 +5,274 

Abandoned Mine Lands 67 16,687 67 16,687 +75 - +0 - +2,821 67 19,583 +0 +2,896 

Law Enforcement 137 25,325 135 25,325 +153 - +0 +2 +179 137 25,657 +2 +332 

Hazardous Materials Management 99 15,612 96 15,612 +106 - +0 - 1 +0 95 15,718 -1 +106 

Total, Resource Protection & Maintenance 532 94,749 524 94,749 +590 - +0 + 4 +8,018 528 103,357 +4 +8,608 

Transportation & Facilities Maintenance

Annual Maint. & Ops 281 38,637 273 38,637 +310 - +0 +4 +500 277 39,447 +4 +810 

Def. Maint. & Cap. Improvements 60 26,995 62 26,995 +69 - +0 - +4,240 62 31,304 +0 +4,309 

Total, Trans & Facilities Maint. 341 65,632 335 65,632 +379 - +0 + 4 +4,740 339 70,751 +4 +5,119 

Mining Law Administration 328 37,677 317 39,696 +0 - +0 - 2 +0 315 39,696 -2 +0 

Offsetting Collections (37,677) (39,696) +0 +0 +0 (39,696) +0 

Workforce & Organizational Support

Administrative Support 312 47,127 304 47,127 +350 - +0 - +454 304 47,931 +0 +804 

Bureauwide Fixed Costs - 87,773 - 92,901 -1,938 - +0 - +47 - 91,010 +0 -1,891 

IT Management 130 25,761 130 25,696 +145 - +0 - +0 130 25,841 +0 +145 

Total, Workforce & Organizational Support 442 160,661 434 165,724 -1,443 - +0 - +501 434 164,782 +0 -942 

Challenge Cost Share 1 2,413 1 2,413 +3 - +0 + 1 +1,163 2 3,579 +1 +1,166 

National Monuments and National Conservation Areas 244 29,909 253 31,819 +283 - +0 - +1,898 253 34,000 +0 +2,181 

Total, Management of Lands & Resources 5,994 902,160 6,078 956,875 +3,937 - +0 +97 -6,727 6,175 954,085 +97 -2,790 

2015 President's Budget

2013 Actual 2014 Enacted Fixed 

Cost

 Transfers Program Changes 

 Requested 

Amount 

 Change from 2014 

Enacted 

Summary of Requirements (continued)

(dollars in thousands)
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 27

Fixed Cost Changes and Projections 2014 Total 

or Change

2014 to 2015 

Change

Change in Number of Paid Days - +0

Pay Raise +4,013 +5,428

Employer Share of Federal Health Benefit Plans +333 +447

Departmental Working Capital Fund 24,910 -169

Worker's Compensation Payments 9,110 -705

Unemployment Compensation Payments 7,256 +113

Rental Payments 64,570 -1,177

The change reflects expected changes in the charges for centrally billed Department services and other 

services through the Working Capital Fund. These charges are displayed in the Budget Justification for 

Department Management.

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.

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.

The adjustment is for changes in the costs payable to General Services Administration (GSA) and others 

resulting from changes in rates for office and non-office space as estimated by GSA, as well as the rental 

costs of other currently occupied space. These costs include building security; in the case of GSA space, 

these are paid to Department of Homeland Security (DHS). Costs of mandatory office relocations, i.e. 

relocations in cases where due to external events there is no alternative but to vacate the currently 

occupied space, are also included.

Justification of Fixed Costs and Internal Realignments

Management of Lands and Resources

(Dollars In Thousands)

The number of paid days do not change between FY2014 and FY2015.

The change reflects the salary impact of a programmed one percent pay raise increase as proposed in 

the Circular A-11.

The change reflects expected increases in employer's share of Federal Health Benefit Plans.
2015 Budget Justifications Bureau of Land Management

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Land Resources 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 29

Activity: Land Resources

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Soil, Water & Air 

Management

$000 41,455 42,939 +254 +0 +2,159 45,352 +2,413

FTE 227 227 +0 +0 227 +0

Rangeland Management $000 75,955 79,000 +727 +0 -4,799 74,928 -4,072

FTE 670 675 +0 -35 640 -35

Grazing Administration 

Management

$000 0 0 +0 +0 +6,500 6,500 +6,500

Offset 0 0 +0 +0 -6,500 -6,500 -6,500

FTE 0 0 +0 +50 50 +50

Public Domain Forest 

Mgmt

$000 5,889 9,838 +91 +0 +0 9,929 +91

FTE 48 81 +0 +0 81 +0

Riparian Management $000 21,321 21,321 +191 +0 +1,488 23,000 +1,679

FTE 171 169 +0 +2 171 +2

Cultural Resources 

Mgmt

$000 15,131 15,131 +127 +0 +742 16,000 +869

FTE 116 114 +0 +0 114 +0

Wild Horse & Burro 

Mgmt

$000 71,836 77,245 +193 +0 +2,800 80,238 +2,993

FTE 185 173 +0 +0 173 +0

Total, Land Resources $000 231,587 245,474 +1,583 +0 +2,390 249,447 +3,973

FTE 1,417 1,439 +0 +17 1,456 +17

Justification of 2015 Program Changes

The 2015 budget request for the Land Resources activity is $249,447,000 and 1,456 FTE, a 

program change of +$2,390,000 and +17 FTE from the 2014 enacted level.

Activity Description

This activity provides for integrated management of public land renewable and cultural 

resources. The BLM manages these resources on a landscape basis, with each program 

contributing to the overall health of the land. Conserving, restoring, and sustaining the health of 

the land is the foundation for the BLM’s renewable resources management and is key to the 

agency’s long-term strategic vision. Livestock grazing, timber harvesting and other resource 

uses can be sustained over time only if the land is managed to restore or sustain a healthy 

condition.

The programs in this activity, in concert with other BLM programs, work together to support the 

BLM mission by providing renewable resources, commercial and recreational uses and 

aesthetic benefits through healthy forests, healthy rangeland ecosystems, functioning 

watersheds and properly functioning riparian habitat. The BLM provides forage for livestock, 

protects cultural values, and maintains thriving wild horse and burro herds. 
2015 Budget Justifications Bureau of Land Management

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Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 31

Activity: Land Resources

Subactivity: Soil, Water & Air Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Soil, Water & Air 

Management

$000 41,455 42,939 +254 +0 +2,159 45,352 +2,413

FTE 227 227 +0 +0 227 +0

Summary of 2015 Program Changes for Soil, Water & Air 

Management: ($000) FTE

Enhance Core Capabilities +909 +0 

Youth in the Great Outdoors +1,250 +0 

Total +2,159 +0 

Justification of 2015 Program Changes

The 2015 budget request for the Soil, Water & Air Management activity is $45,352,000, and 227 

FTE, a program change of +$2,159,000 and 0 FTE from the 2014 enacted level.

Enhance Core Capability (+$909,000/0 FTE) – The 2015 budget request includes a program 

increase of $909,000. The additional funds will be used to support Colorado River Basin Salinity 

Program efforts by reducing salinity and sediment loading into the international river basin; 

increase regional air resource monitoring and modeling efforts, specifically designed to share 

data across Federal agencies and support regional energy development; enhance the 

development of Ecological Site Descriptions in range lands and pilot areas for forestry, riparian 

and wetlands; and increase water quantity compliance monitoring and reporting to protect 

Federal reserve water rights. 

Youth in the Great Outdoors (+$1,250,000/0 FTE) – The 2015 budget request includes a $1.3 

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

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

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

backgrounds with hands-on learning in Science, Technology, Engineering, and Mathematics 

(STEM), and prepare them for careers in STEM fields. 

Program Overview

The Soil, Water & Air Management Program supports a significant number of BLM activities and 

use authorizations, including energy development, endangered species recovery, grazing, 

recreation, and fire rehabilitation, that rely on the management of soil, water and air resources. 

The Soil, Water & Air Management Program collects and analyzes the soil, water, and air 

resource data needed to manage natural resources effectively, and applies expertise to assess, 

sustain, protect, and improve the productivity and health of public lands. This data is a key 

component of sustainable BLM land management decisions. The program relies heavily on 

collaborative public-private partnerships to improve and enhance watershed, landscape, and 

airshed conditions. 
2015 Budget Justifications Bureau of Land Management

Page VII - 32 Chapter VII – Management of Lands and Resources

The Soil, Water & Air Management Program is responsible for:

 Compliance with anti-pollution laws such as the Clean Water Act and the Clean Air Act;

 Conducting soil surveys to understand soil distribution, properties and responses to 

various uses, and to understand important climate change processes such as terrestrial 

carbon sequestration;

 Developing ecological site descriptions to understand the processes that influence the 

type, amount, and distribution of vegetation within defined landscapes as well as provide 

key information to land managers for climate adaptation strategies;

 Monitoring and managing soils to support current land-health standards, sustain plant 

and animal productivity, maintain associated water and air quality, as well as reduce 

threats to human health and safety;

 Monitoring water resource conditions and trends, protecting Federal water rights and, 

where appropriate, acquiring water rights to ensure adequate quantities of water for 

public land management purposes;

 Monitoring water quality as well as identifying, promoting and implementing bestmanagement practices to maintain and improve functioning aquatic ecosystems;

 Reducing salt and sediment discharge to waters in order to ensure usable water 

supplies for millions of downstream users;

 Assessing and analyzing impacts to air quality, visibility, noise, and climate; and

 Reporting greenhouse gas emissions as required under Executive Order 13514. 

 

Means and Strategies

 The Soil Water & Air Management Program will continue to promote watershed function 

and soil stability as the primary means to achieve BLM performance goals. Priority will 

be placed on providing land managers with access to the expertise needed to identify, 

monitor and assess the environmental effects of actions, use authorizations and 

associated decisions.

 A five-year water resource strategy will be completed in 2014 and will set the priorities 

for the Water Program in 2015. Drought conditions continue to affect the western U.S. 

and are exacerbating soil erosion, air quality problems and water shortages. The Soil, 

Water & Air Program is developing a water strategy with these threats at the forefront, 

and is working with other BLM programs, as well as collaborative partners, to develop 

strategies that assist managing valuable resources under persistent drought conditions. 

 A revised manual for acquiring, perfecting and protecting water rights was completed in 

2013. The BLM will complete draft manual sections for water quality and groundwater in 

2015, as well as draft handbooks for watershed assessments. 

 A five-year air resource management strategy will be updated in 2014 to improve the 

effectiveness of air resource management outcomes and methodologies. The draft 

strategy has already resulted in the development of a robust air program at the BLM, 

with the installation of air monitoring equipment, support of regional air quality data 

collection through a multi-State consortium, and implementation of several regional air 

modeling efforts. An air resource handbook is to be drafted in 2014 and completed in 

2015.

 The Department of the Interior, the Department of Agriculture, and the Environmental 

Protection Agency developed a Memorandum of Understanding (MOU) in 2011 to 

improve approaches for analyzing air quality impacts from oil and gas development 

projects on Federal lands. The Air MOU implementation team is actively working to 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 33

resolve resource issues and provide training to Federal and State agencies as well as 

tribal nations.

 A five-year soil resource strategy will be drafted in 2014 and completed in 2015. The 

strategy will address threats such as drought, fire, the spread of invasive species and 

the loss of ecological connectivity between public and private lands. In addition, the 

strategy will help identify ecosystem services provided by soils within a landscape or 

watershed. 

Critical Factors and Demands 

The BLM addresses a number of critical factors and demands in its Soil, Water and Air 

Program. These include the following:

 A changing climate and its potential to alter landscapes; the quantity, quality and 

distribution of water resources; soil quality; air quality; vegetative conditions and wildlife 

habitat; as well as associated socioeconomic values; 

 Uncertainties regarding groundwater flows, soil properties and air resource impacts that 

in many areas complicate decision-making; 

 The development of extensive renewable energy on public lands is a BLM priority. 

Hydrologists, soil scientists and air resource specialists are needed to assess and 

manage the resource impacts associated with this development. 

 Greater water demands for economic development and requirements for ecosystem 

function are increasing the need to perfect and protect Federal water right interests. 

 Stricter air quality standards, existing non-attainment areas, and visibility regulations are 

increasing the workload and technical demands associated with ensuring that activities 

that emit dust, ozone, smoke and other pollutants comply with the Clean Air Act.

 Increases in landscape disturbances magnify the challenges associated with meeting 

applicable water quality standards.

2015 Program Performance

The Soil, Water & Air Management Program will continue to make progress towards key 

performance goals in 2015. Primary focus areas will include:

 Water Quality - Improving or maintaining water quality on public lands remains an 

important objective. Efforts will continue to focus on requiring and implementing best 

management practices for new land use authorizations and activities, changing current 

management practices where appropriate, and restoring degraded watershed function. 

 Ecological Site Descriptions - ESDs are considered the best analytical approach for 

predicting how vegetation will respond to changes in management or climate conditions 

at the local and landscape scales. The Soil, Water & Air Management Program will fund 

multiple projects to aid in the development of ESDs needed for sage-grouse habitat 

management and energy development planning. In 2015, the BLM will also begin to use 

two on-line training modules to address ESD development and uses as they relate to 

soils.

 Water Rights – Demands for processing reserved and appropriative water rights actions 

with related litigation activities are expected to remain high. A typical workload ranges 

between 3,000 and 5,000 actions per year nationwide.

 Colorado River Salinity Control - Efforts to reduce the transport of salt and sediment 

into the Colorado River will continue; funding will be increased by 20 percent over the 
2015 Budget Justifications Bureau of Land Management

Page VII - 34 Chapter VII – Management of Lands and Resources

2014 level. The BLM annual performance goal associated with the Colorado River 

Salinity Control Program aims to reduce the transport of salts and sediment from public 

lands into the Colorado River system as well as aid in the improvement of land health 

within the basin. 

 Air Resources – The BLM expects to increase monitoring and assessment work in 

2015 by approximately 10 percent above 2014 levels. 

 Groundwater Resources - Efforts to understand the impacts of hydrological fracturing 

and energy developments on groundwater will continue in 2015.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 35

Activity: Land Resources

Subactivity: Rangeland Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Rangeland Management $000 75,955 79,000 +727 +0 -4,799 74,928 -4,072

FTE 670 675 +0 -35 640 -35

Grazing Administration 

Management

$000 0 0 +0 +0 +6,500 6,500 +6,500

Offset 0 0 +0 +0 -6,500 -6,500 -6,500

FTE 0 0 +0 +50 50 +50

Notes: - The Range Improvements current mandatory appropriation is a collaborative activity of the 

Rangeland Management program. The 2014 enacted amount (post-sequester) for Range 

Improvements is $9.28 million. The 2015 President's budget request for Range Improvements 

is $10 million.

- The Resource Development Protection & Management permanent mandatory appropriation is 

a collaborative activity of the Rangeland Management program. The 2014 estimated new 

budget authority amount (post-sequester) for Resource Development Protection & 

Management is $1.059 million. The 2015 estimated new budget authority amount for Resource 

Development Protection & Management is $1.141 million.

- More information on these collaborative activities is found at the end of this section in a table 

titled Other Resources Supporting Rangeland Management and in the Range Improvements 

and Miscellaneous Trust Funds chapters, respectively.

Summary of 2015 Program Changes for Rangeland Management: ($000) FTE

Grazing Permit Issuance/Shift Cost to Fees -4,799 -35 

Total -4,799 -35 

Justification of 2015 Program Changes

The 2015 budget request for the Rangeland Management Program is $74,928,000 and 640 

FTE, a program change of $-4,799,000 and -35 FTE from the 2014 enacted level.

Grazing Permit Issuance/Shift Cost to Fees (-$4,799,000/-35 FTE) – The budget proposes to 

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

fees. The reduction of $4.8 million in the request for appropriations combined with the estimated 

$6.5 million in fee collections from a new grazing administration fee will result in a net increase 

of $1.7 million in funding resources available to address the grazing permit backlog. (See 

Legislative Changes section below for a detailed description of the proposed administrative fee)

Legislative Changes

Permit Administrative Processing Fee - The 2015 budget includes appropriations language 

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

permits/leases on BLM lands. The BLM would charge a permit administrative fee of $1 per 

Animal Unit Month, which would be collected along with current grazing fees. The budget 

estimates the permit administrative fee will generate $6.5 million in 2015, and that it will assist 

the BLM in processing pending applications for grazing permit renewals. During the period of 

the pilot, the BLM will promulgate regulations for the continuation of the administrative fee as a 

cost-recovery fee, to be in place once the pilot expires.
2015 Budget Justifications Bureau of Land Management

Page VII - 36 Chapter VII – Management of Lands and Resources

SEC. 410. Beginning on March 1, 2015, and only to the extent and in the 

amount provided in advance in appropriations Acts, the Secretary of 

Agriculture shall collect an annual administrative fee for grazing domestic 

livestock on National Forests in the 16 contiguous western States and on 

National Grasslands in the amount of $1.00 per head month for cattle and its 

equivalent for other livestock. The administrative fee shall be billed and 

collected using the process as provided in sections 222.50 through 222.52 of 

title 36, Code of Federal Regulations. Fees collected may be used, subject to 

appropriation, to offset the cost of administering the livestock grazing 

program. Nothing in this provision shall affect the calculation, collection,

distribution, or use of the grazing fee under 43 U.S.C. 1751(b), title III of the 

Bankhead Jones Farm Tenant Act (7 U.S.C. 1010), and implementing 

regulations.

In fiscal year 2015, beginning on March 1, 2015, 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 focuses on efforts to maintain 

or improve public land health through monitoring and land health evaluations; administration of 

grazing use through 10-year permit renewals; development of grazing systems and range 

improvements; grazing permit compliance inspections; management of permittee, allotment and 

resource data; and management of invasive species and noxious weeds. Priorities are placed 

on processing the most environmentally sensitive permits first, in order to best manage livestock 

use and improve or maintain healthy land conditions.

The BLM manages approximately 17,750 livestock grazing permits and leases on the public 

lands. Livestock grazing is an integral part of the BLM multiple use mission and is authorized by 

the Taylor Grazing Act (1934), the Federal Land Policy Management Act (1976) and the Public 

Rangeland Improvement Act (1978).

Livestock grazing serves as an important tool in many areas to provide environmental benefits 

such as preservation of open space, reduced wildfire risks and enhanced distribution of 

available water for wildlife. Ranchers often serve as the eyes and ears for public land managers 

and assist with public health and safety. They provide public lands information, report wildfires, 

assist in wildfire suppression when appropriate, restore land health, and assist in search and 

rescue operations.

Rangeland stewardship is recognized with an annual award presented by BLM. Success stories 

show the public that good stewardship is improving rangelands.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 37

The BLM also leverages grazing receipts 

with funds from local permittees/lessees to 

construct range improvement projects (see 

the Range Improvement Account section for 

additional information). The 2012 DOI 

Economic Report shows that the BLM’s 

management of livestock grazing had a 

positive impact of $1.5 billion on the 

economy and supported 17,000 jobs 

nationwide.

Noxious weed and invasive species 

management is a critical component of the 

Rangeland Management Program. 

Cooperative Weed Management Area 

partnerships and other cooperative efforts 

leverage funding to assist with weed 

inventory, land treatments, monitoring, and 

project work to improve land health. The BLM is also striving to create Coordinated Invasive 

Species Management partnerships to leverage partnerships that will target invasive species on 

the public lands.

Critical Factors – Critical factors affecting the Rangeland Management Program include the 

following:

 A changing climatic regime, resulting in more frequent and severe floods and extended 

droughts, requires aggressive pursuit of adaptive management strategies.

 Frequent and severe wildfires have reduced the diversity of the western rangelands and 

have accelerated the spread of invasive species and noxious weeds.

 Changing and competing public demands require continuous assessment and modification 

of grazing practices and have made environmental reviews more complex.

 Development of public lands as part of the Secretary’s Powering Our Future initiative for 

renewable and non-renewable energy and mineral resources may require mitigation efforts 

to offset loss of rangeland resources.

 Limited baseline data about soils, ecological sites, and factors associated with land health 

stressors, combined with limited monitoring data, have led to a large number of 

environmental lawsuits.

 Invasive and noxious weeds spreading over thirty-five million acres of BLM-managed lands 

require greater efforts to control and manage.

 The complexity of permit processing has increased due to litigation, mitigation needs, 

changing NEPA requirements, severe weather patterns, drought, catastrophic fire and other 

multiple uses public land challenges.

 Catastrophic outbreaks of grasshopper and Mormon cricket populations that affect

vegetation require emergency responses by the BLM and other Federal agencies.

2013 Rangeland Stewardship Award Recipient 

Merill Beyeler leads a tour of an allotment. 

Because of his management, the allotment is 

showing good growth of native forbs and plants
2015 Budget Justifications Bureau of Land Management

Page VII - 38 Chapter VII – Management of Lands and Resources

Means and Strategies – The Rangeland Management Program coordinates with other BLM 

programs and partner organizations to achieve integrated vegetation management at the 

landscape level. In this coordinated effort, the Rangeland Management Program is addressing 

critical factors through multiple avenues, including:

 Using eco-regional assessments to identify conservation, development and restoration 

opportunities and strategies;

 Monitoring the effectiveness of grazing management in achieving land use plan and activity 

plan objectives, and in meeting land health standards;

 Collecting core indicator data in upland habitats and supporting landscape-level land health 

and condition monitoring;

 Conducting interdisciplinary land health evaluations on a watershed or landscape scale to 

help ensure a balanced approach to livestock grazing;

 Ensuring that land health considerations and resource conflicts are the primary factors used

to prioritize allotments for processing livestock grazing permit renewals;

 Using the permit issuance process, the Allotment Management Plans, and the Coordinated 

Resource Management Plans (RMP) to ensure scientifically-based livestock grazing 

management;

 Tiering permit renewals to RMPs and larger-scale NEPA documents;

 Completing a business process review in consultation with the U.S. Forest Service to look 

for efficiencies in the permit renewal process;

 Coordinating with other programs to work towards a national land treatment geospatial 

dataset that documents the location of treatments on the landscape and tracks their 

effectiveness;

 Educating youth about the importance and complexity of rangeland resources;

 Leveraging program funds with other Federal, State, and local agencies, permittees, and 

non-governmental organizations to implement on-the-ground Healthy Landscape and 

invasive species and noxious weed projects;

 Continuing research efforts in the use of livestock as a tool to decrease fuel loads, 

especially annual cheatgrass, to prevent catastrophic wildfire and restore desirable 

perennial grasses and forbs; and

 Collecting and sharing weed inventory data with Federal, State and county partners to 

identify weed infestation locations.

Grazing Permit Renewal – In 2015, the BLM will continue to focus on processing the most 

environmentally sensitive grazing permits, including those authorizing grazing in priority sagegrouse habitat. Focusing on the most environmentally sensitive allotments will allow for 

increased land health assessment and quantitative data collection efforts; improve the 

usefulness of RMP/EIS and site-specific NEPA analyses; and result in grazing management 

decisions that guide land health solutions for the future. This strategy will assist in ensuring that 

the backlog of unprocessed permits consists of the least environmentally sensitive allotments 

that are more custodial in nature or are already meeting land health standards.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 39

Annual (by Fiscal Year) Grazing Permit Renewal Status

This chart illustrates the status of processing grazing permits since 1999. Processing permits 

includes, at a minimum, NEPA and Endangered Species Act (ESA) compliance. Unprocessed 

permits are those issued in accordance with General Provisional language in Appropriations 

Acts.

This chart illustrates the cumulative number of permits processed since 1999. The number of 

permits processed per year is greater than the number of permits administered because some 

permits have expired more than once since 1999.

Invasive Species and Weed Management – Land areas that contain fire-adapted ecosystems 

and surface disturbance activities are most vulnerable to noxious weed and invasive species. 

The Noxious Weed and Invasive Species Management Program in the BLM Rangeland 

Management Program addresses these issues on BLM lands throughout the West. The BLM 

manages invasive species and weeds to improve habitat in the riparian areas that are critical to 

60 percent of the wildlife species in semi-arid environments and to improve the terrestrial habitat 

areas that are critical for the Greater Sage-Grouse. The BLM will continue to prioritize its

ongoing early detection and rapid response efforts and focus on areas where invasive species 

were previously unknown or limited in their expansion on public lands.

Internal and external partners are critical for the BLM to succeed in detecting, controlling and 

managing noxious weeds and invasive species. The Partners Against Weeds Action Plan, 

Pulling Together, National Strategy for Invasive Plant Management, and the National Invasive 

0

1000

2000

3000

4000

5000

6000

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013

Expired

Fully Processed

Unprocessed Status

0

5000

10000

15000

20000

25000

30000

35000

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013

Expired

Processed

Unprocessed Status

Cumulative (by Fiscal Year) Grazing Permit Renewal Status
2015 Budget Justifications Bureau of Land Management

Page VII - 40 Chapter VII – Management of Lands and Resources

Species Management Plan assist in education, prevention, inventory, and monitoring efforts 

while using an Integrated Pest Management approach to control and restore areas impacted by 

weeds and invasive species. The 2015 Department of Interior Invasive Species Strategy will 

provide Interior agencies further guidance for forming partnerships and leveraging resources 

across agencies.

Other Program Resources

Other Resources Supporting Rangeland Management:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Resource Development Protection & 

Management

$000 1,707 1,059 1,141 +82

FTE 3 3 3 +0

Range Improvements $000 9,490 9,280 10,000 +720

FTE 36 36 36 +0

Notes:

- Resource Development Protection & Management amounts are shown as new budget authority derived from non-federal 

sources (contributed funds); the Taylor Grazing Act of 1934, as amended (43 USC 315h, 315i) appropriates these funds on a 

permanent basis

- Amount in 2013 and 2014 for Resource Development Protection & Management shown net of sequestration

- More information on Resource Development Protection & Management is found in the Miscellaneous Trust Funds chapter

- Actual and estimated obligations, by year for Resource Development Protection & Management are found in President's 

Budget Appendix under the BLM section for Miscellaneous Trust Funds account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

- Range Improvements amounts are shown as new budget authority derived from 50 percent of the grazing fees collected on 

BLM-managed lands, with any difference appropriated from the General Fund; the annual Interior, Environment, and Related 

Agencies Appropriation Act appropriates these funds on a current basis

- Amount in 2013 and 2014 for Range Improvements shown net of sequestration

- More information on Range Improvements budget request is found in the Range Improvements chapter

- Actual and estimated obligations, by year for Range Improvements are found in President's Budget Appendix under the 

BLM section for Range Improvements account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

2015 PROGRAM PERFORMANCE

Permit Renewal – The BLM will continue to prioritize permit renewals based on environmental 

sensitivities and continue to review and use existing NEPA analyses as appropriate. When 

necessary, the BLM will supplement or tier to existing NEPA to address changes or analyze 

new information. The BLM will continue to emphasize the collection of quantitative resource 

data for more defensible decisions, and will work closely with stakeholders, local governments, 

and the public during allotment plan development, evaluations and the NEPA process. 

The BLM will use authorities provided in the proposed 2015 General Provisions to continue to 

process the most environmentally sensitive grazing permits. The BLM also plans to use the $6.5 

million collected under the proposed permit administrative fee to process 235 grazing permits 

and leases, monitor 200 allotments, assess 1.5 million acres of watersheds, and complete 185 

land health evaluations. The grazing permit/lease processing work is included within DOI 

Strategic Measure ‘Percent of grazing permits and leases processed as planned consistent with 

applicable resource management plans’. Barring another catastrophic fire season in 2015, BLM 

field offices should be able to utilize the monitoring and land health assessment data collected 

from the past few years to complete the NEPA and other work related to grazing permits 

renewals.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 41

Noxious and Invasive Weeds and other invasive species – The BLM will continue to 

inventory invasive and noxious weeds and other invasive species infestation on BLM lands. The 

BLM will identify and treat high-priority areas and monitor treated areas to determine the 

effectiveness of treatments. These efforts contribute to the DOI Strategic Measure ‘Percent of 

baseline acres infested with invasive plant species that are controlled.’ 

Land Health Assessment and Monitoring – BLM-managed rangelands are assessed and 

monitored to direct management actions to areas not meeting desired conditions. Data collected 

during rangeland assessment and monitoring activities are used as one component in 

determining the DOI Strategic Measure ‘Percent of DOI acres that have achieved desired 

conditions where condition is known and as specified in management plans.’

Land Restoration – Land treatments and project completion data will be used to determine the

DOI Strategic Measure ‘Number of DOI acres restored to the condition specified in management 

plans’.
2015 Budget Justifications Bureau of Land Management

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Chapter VII – Management of Lands and Resources Page VII - 43

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Public Domain Forest 

Management

$000 5,889 9,838 +91 +0 +0 9,929 +91

FTE 48 81 +0 +0 81 +0

Other Resources Supporting Public Domain Forest Management:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Forest Ecosystem Health & 

Recovery

$000 6,104 5,522 5,610 +88

FTE 58 58 58 +0

USFS Forest Pest Control $000 475 310 400 +90

FTE 2 2 2 +0

Notes:

- Forest Ecosystem Health & Recovery amounts are shown as new budget authority derived from the federal share of 

receipts from all BLM timber salvage sales, and from BLM forest health restoration treatments funded by this account; 43 

USC 1736a appropriates these funds on a permanent basis

- Amount in 2013 and 2014 for Forest Ecosystem Health & Recovery shown net of sequestration

- More information on Forest Ecosystem Health & Recovery is found in the Permanent Operating Funds chapter

- Forest Ecosystem Health & Recovery is used on both Public Domain Forestry and Oregon and California Grant Lands

- Actual and estimated obligations, by year for Forest Ecosystem Health & Recovery are found in President's Budget 

Appendix under the BLM section for Permanent Operating Funds account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

- USFS Forest Pest Control amounts are shown as estimated transfers

- More information on USFS Forest Pest Control is found in the U.S. Forest Service Budget Justifications

- USFS Forest Pest Control is used on both and Oregon and California Grant Lands

Justification of 2015 Program Changes

The 2015 budget request for the Public Domain (PD) Forestry Management Program is 

$9,929,000 and 81 FTE.

Program Overview

The PD Forest Management Program manages and conserves 58 million acres of forests in 12 

western States, including Alaska. The PD Forests have broad uses and serve many Americans, 

both directly and indirectly. Forests store and filter water for aquifers and reservoirs; offer 

opportunities for recreation; provide habitat for thousands of species; support timber and other 

jobs; provide millions of board feet of lumber and thousands of tons of biomass for alternative 

energy. Maintaining resilient forest and woodlands also plays an important role in carbon 

sequestration and providing clean air. According to the Department of the Interior’s 2012 

Economic Impact Report, timber harvested from PD forests supported $659 million in economic 

activity, and biomass from BLM forests has become part of the feedstock that meets various 

State and Federal renewable energy portfolio standards.

Activity: Land Resources

Subactivity: Public Domain Forest Management
2015 Budget Justifications Bureau of Land Management

Page VII - 44 Chapter VII – Management of Lands and Resources

In coordination with other vegetation management programs, the PD Forest Management 

Program seeks large landscape approaches to managing land resources. The program 

maintains and improves the resilience of forest and woodland ecosystems. Density 

management through timber sales and stewardship contracts is essential to maintaining resilient 

forests. The program also administers various requirements of the Department of the Interior 

such as regulation, accounting and record keeping, volume estimation, appraisal, and permitting 

of vegetative materials under the Materials Act of 1947.

Healthy, resilient forests provide habitat for a variety of flora and fauna, including whitebark 

pine, an Endangered Species Act (ESA) candidate currently classified as “warranted, but 

precluded.” To maintain health and productivity, many forests require active management. A 

century of wildfire suppression has left forests choked with fuels that contribute to costly, 

catastrophic fires, while changing climate and drought reduces the resiliency of the forests and 

leaves the trees vulnerable to damage from insects and disease.

The BLM leverages Forest Ecosystem Health and Recovery funding, USDA Forest Health 

Protection funding, and stewardship authority to maximize program accomplishments. The 

program also coordinates with the Wildland Fire Management Program to leverage funds for 

hazardous fuels reduction projects.

Critical Factors – Critical factors affecting the Public Domain Forest Management program 

include:

 Approximately 14 million acres (or 24 percent) of PD forests are overstocked and at 

increased risk of insect and disease attacks and catastrophic wildfire. Prime among 

these risks are the mountain pine beetle and the spruce budworm, which are currently 

killing intermountain pine and fir on BLM forestlands. In addition, an invasive fungus, 

white pine blister rust, has infiltrated the colder altitudes where whitebark pine thrives. 

The U.S. Fish and Wildlife Service (FWS) judges that these factors, along with fire and 

warming climate, undermine species’ viability and may cause the whitebark pine to 

disappear within two to three generations.

 The capacity of BLM foresters to plan and implement treatments on the ground to take 

advantage of the increase in demand for wood products as economic conditions are 

improving, sawmills are reopening, and bioenergy facilities are coming online is critical to 

increasing forest resilience. Since most forest health and restoration treatments are 

accomplished through the sale of timber and by-products resulting from the treatments, 

purchasers of forest product raw materials decrease the BLM’s cost of conducting 

treatments and restoration on a per acre basis.

 Increasing energy prices and high unemployment rates increase the demand for 

firewood in rural areas, leading to significant increases in illegal taking of woodland 

resources. For example, in Cuba, New Mexico, thousands of locals, including many 

Native Americans, use pinyon-juniper forests for cooking and heating their homes, 

cutting trees with a permit. Demand for firewood recently increased, perhaps due to 

economic hardships and rising propane prices. As a result, illegal woodcutting occurred 

in areas popular for hiking and valued for scenic and resource values. BLM New Mexico 

foresters quickly moved into action to develop more legal firewood areas to meet local 

demand; inventory stolen trees for timber theft reports and citations; patrol both legal 

firewood areas as well as areas of illegal woodcutting; and conduct community outreach 

and educational meetings. As a result, Farmington and Rio Puerco Field Office Law 

Enforcement Rangers have seen a decline in illegal woodcutting. Biomass from BLM 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 45

forest and woodland projects has become part of the feedstock that energy companies 

are relying on to meet various State and Federal renewable energy portfolio standards.

 Biomass from BLM forest and woodland projects has become part of the feedstock that 

energy companies are relying on to meet various State and Federal renewable energy 

portfolio standards.

Stewardship contracting authority is used by BLM as a vital tool for forest and woodland 

conservation. From 2008-2013, Stewardship contracting offered approximately 73 Million Board 

Feet (MMBF) of timber from Public Domain (PD) land, which is 25 percent of the total volume,

offered in the PD over that period. Stewardship contracting is also an effective tool for 

increasing biomass utilization. During the same period, BLM offered 480,000 tons of biomass 

through Stewardship contracts. These volumes are essentially by-products of forest health 

treatments implemented through Stewardship contracts with a total footprint acreage of over 

83,000 acres.

One of the main reasons Stewardship is considered a 

vital tool for forest management is the trading goodsfor-services provision. Prior to Stewardship authority, 

the implementation of forest health treatment 

prescriptions that required harvest of both commercial 

timber and trees with negative stumpage value had to 

be implemented through two separate actions: (1) the 

timber sale contract which implements laws regulating 

the sale of timber; and (2) a procurement (service) 

contract which is governed by law regulating Federal 

procurement of services. With Stewardship, BLM is 

allowed to blend these two actions into one contract, 

utilizing the timber value to offset appropriations that would be needed to pay for service 

work. The receipts derived from stewardship contracts are receipts in excess of the cost for the 

services contracted.

Means and Strategies – The BLM coordinates the strategies of PD Forest Management with 

other BLM programs and partner organizations to achieve integrated vegetation management at 

the landscape level using a corporate approach to managing ecosystem functions and services 

by emphasizing shared on-the-ground vegetation goals across programs, processes, and 

scales.

BLM integrated the national-level coordination of vegetative management, including forestry, 

rangeland management, riparian management, plant conservation, invasive weeds, and fire 

rehabilitation into a cohesive team that leverages resources to make policy development more 

collaborative at a landscape scale. In this coordinated effort, the BLM is addressing forest 

management critical factors through multiple activities, including using results from the BLM’s 

Rapid Ecoregional Assessment process to identify focal areas for forest management activities 

at the ecoregional scale. 

The PD Forest Management Program achieves land use goals by:

 Implementing forest restoration projects to improve forest health and resilience, which 

increases resistance to wildfires, disease, drought, invasive pests, and climate change at 

the landscape scale;

 Sustainably harvesting and regenerating forests and woodlands to produce a continuous 

supply of wood products and renewable energy feedstocks;

Drought, Wildfire, and Forests

Extreme drought and drought-fueled 

wildfires plagued much of the West over 

the past decade, impacting forest health 

and local economies. In 2013, fire

affected over 375,000 acres of BLM 

forest. 1.7 million acres of forest 

mortality exists due to bark beetles and 

insect attack. Many of these acres are 

salvageable for timber, which clears the 

way for reforestation.
2015 Budget Justifications Bureau of Land Management

Page VII - 46 Chapter VII – Management of Lands and Resources

 Salvaging dead and dying timber 

to promote forest health and reduce 

hazardous fuels, in balance with the 

need for wildlife habitat, watershed 

function, and soil stability, while 

supporting local economies;

 Providing the public with 

commercial and personal use 

opportunities to harvest products such as 

firewood, Christmas trees, boughs, 

greenery, medicinal plants, fence posts, 

and pinyon pine nuts from forests and 

woodlands. In 2013 over 20,000 firewood 

permits were sold that continue to 

provide a renewable energy source for 

heating thousands of households in rural 

communities;

 Inventorying 58 million acres of 

forest resources through a national 

database;

 Utilizing the Good Neighbor 

authority to achieve forest health 

treatments on a landscape level across 

BLM, State, and private lands to increase 

forest resiliency;

 Implementing stewardship 

agreements which exchange harvested 

forest products for the forest health 

treatments and use matching funds to 

treat greater acreage;

 Partnering with the U.S. Forest 

Service, the Department of Energy, State agencies, and private parties to develop and 

implement the Coordinated Resource Offering Protocol tool to provide web-based 

information on biomass removal opportunities for investors to use when considering bioenergy development investment opportunities; 

 Supporting renewable energy goals by promoting the direct conversion and use of 

woody biomass for energy within BLM-owned facilities, as a part of an interagency 

bioenergy facility initiative; and

 Requiring that all measurable biomass by-products from forest treatments such as 

timber sales, stewardship contracts, and hazardous fuels reduction are offered for 

utilization.

2015 Program Performance

The BLM will accomplish program performance through sales and stewardship contracts to 

achieve desired future conditions on the 58 million acres of forests and woodlands in the public 

domain, offering economic benefits for the present and managing forest health for the future.

In 2015, the Public Domain Forest Management program will address several DOI strategic and 

Bureau plan performance measures:

Lack’s Creek Restoration through 

Collaborative Stewardship

BLM Forestry and Fuels programs, in collaboration 

with the Rocky Mountain Elk Foundation and the 

Hoopa Tribe, are working to restore oak woodlands 

and prairies in the Lack’s Creek Management area in 

Arcata, CA. Using a stewardship agreement with the 

Hoopa Tribe, timber value offsets the cost of service 

components of the project. The BLM Arcata Field 

Office’s forester designed the project prescription and 

oversaw the commercial harvesting. After encroaching 

Douglas-fir is removed, the Fire and Fuels program 

maintains the oak woodlands and grasslands through 

frequent low-intensity prescribed burning.

The restored oak woodlands and associated 

grasslands are important habitat for a variety of 

wildlife including elk, deer, black bears and a wide 

variety of birds. Hiking and biking trails are also being 

constructed near the restored areas, which will give 

visitors a chance to experience the beautiful 

landscape and the area’s increasingly abundant 

wildlife.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 47

 Forest and woodland areas are assessed and/or monitored to direct management 

actions to areas not meeting desired conditions. Data collected during forest and 

woodland assessment and monitoring are used as one component in determining the 

Bureau plan measures “Percent of DOI acres that have achieved desired conditions 

where condition is known and as specified in management plans” and “Number of DOI 

acres restored to the condition specified in management plans.” Annual increases in 

forest and woodland acreages continue to contribute to achievement of these 

performance measures.

 The BLM will continue to use timber sales to achieve desired future conditions of forest 

stands to meet the Strategic Plan measure “Volume of Wood Products Offered.” 

Similarly, to the extent possible, the BLM will use forest product sales and permits to 

achieve desired future conditions of forest and woodland stands by offering wood 

products as biomass, a Bureau plan measure.

The BLM is a partner in the Nature Conservancy-organized Centennial Fire Learning etwork in 

Montana. Its primary goal is to advance landscape-scale fire restoration in the western portion 

of the Greater Yellowstone Ecosystem and the High Divide region through focused multi-agency 

projects, sharing of lessons learned and the use of rigorous science to guide managers. The 

Dillon Field Office forestry and fuels programs worked together to successfully complete several 

large-scale forest restoration treatments targeting old-growth Douglas-fir savannahs and are 

working on several ongoing aspen enhancement projects, managing for healthy, resilient 

forests. Scientists from Federal and State land management agencies, Beaverhead County, 

University of Montana-Western, University of New Mexico, the Greater Yellowstone Coalition, 

Montana Logging Association and The Nature Conservancy toured BLM project sites and 

agreed that the projects are soundly based in science, and serve as a model for forest 

management in similar ecosystems.
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Activity: Land Resources

Subactivity: Riparian Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Riparian Management $000 21,321 21,321 +191 +0 +1,488 23,000 +1,679

FTE 171 169 +0 +2 171 +2

Summary of 2015 Program Changes for Riparian Management: ($000) FTE

Enhance Core Capabilities +1,488 +2 

Total +1,488 +2 

Justification of 2015 Program Changes

The 2015 budget request for the Riparian Management Program is $23,000,000, a program 

change of +$1,488,000 and +2 FTE from the 2014 enacted level.

Enhance Core Capability (+$1,488,000/+2 FTE) – The 2015 budget request includes a $1.5

million increase to strengthen BLM’s core capability to pursue a landscape approach to 

managing BLM vegetation resources, including inventorying, assessing, monitoring and 

managing over 150,000 miles of riparian areas and nearly 13 million acres of wetlands. 

Increased funding will be used to conduct additional assessments and monitoring to identify and 

prioritize management and restoration efforts and to support BLM management decisions.

Currently, the need for assessment and monitoring data exceeds what has been possible with 

previous funding levels. In addition, the increased funding will improve tracking of drought 

conditions and improve the quality and quantity of water for wildlife in response to recent 

excessive drought over the past several years.

Program Overview

Program Components – Riparian-wetland areas are important components in every landscape 

type. In the arid West, these moist, green areas are especially critical to sustaining multiple 

ecosystem functions and services, providing terrestrial and aquatic wildlife habitat, reducing 

erosion, improving water quality, and providing recreational opportunities. Although they are a 

small component of landscapes in the West, the diversity of uses and functions of riparianwetland resources and their geographical position on the landscape make these areas 

indicators of overall ecosystem function. Healthy riparian areas play a prominent role in the 

Bureau’s ability to maintain sage-grouse populations by providing shelter from predators and 

supplying the critical foods necessary for the species’ survival. Riparian areas also help prevent 

the spread of wildfires. The BLM’s Riparian Management Program provides the framework for 

inventorying, assessing, monitoring, and managing over 150,000 miles of riparian areas and 

nearly 13 million acres of wetlands. In coordination with the other BLM programs, the Riparian 

Management Program pursues a landscape approach to managing BLM vegetation resources.
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Critical Factors – A number of external factors affect the Riparian Management Program, 

requiring the reallocation of resources and the reevaluation of priorities. Some of these external 

factors include:

 A changing climatic regime resulting in more frequent and severe floods and extended 

droughts, and requiring aggressive adaptive management strategies.

 Growing demands upon water resources and impacts from land-use changes, which 

increase monitoring workloads and necessitate adaptive management strategies.

 Development of public lands as part of the Powering Our Future initiative, requiring 

mitigation efforts to offset water discharge, water pollution, and water loss.

 Spread of invasive terrestrial and aquatic species, such as tamarisk and quagga 

mussel, requiring additional monitoring and treatment to prevent degradation of 

functioning ecosystems and native plant and animal communities.

 Increasing urgency to restore and protect habitats as the number of sensitive and 

special status species grows. Many of these species, including sage-grouse, southwest 

willow flycatcher, cutthroat trout, and bullhead trout, have a critical nexus with riparian 

resources.

 Urban growth and increasing public use of riparian-wetland areas, requiring additional 

monitoring to detect degradation from trails, transportation routes, and visitor use 

activities and to prioritize restoration activities.

 Catastrophic wildfires that negatively affect riparian resources, increasing the workload 

associated with stabilizing and rehabilitating burned areas and monitoring treatment 

success, land condition, and trends.

Means and Strategies – To better achieve program goals and provide improved management 

of public lands, the BLM has adopted a corporate approach to managing ecosystem functions 

and services by emphasizing shared on-the-ground vegetation goals across programs, 

processes, and scales. In this coordinated effort, the Riparian Management Program is 

addressing critical factors through multiple activities, including:

 Incorporating Rapid Ecoregional Assessment information, where appropriate, into 

riparian-wetland planning and management activities;

 Implementing riparian restoration in high-priority focal areas using step-down strategies 

developed from the BLM’s Landscape Approach for managing Public Lands;

 Conducting qualitative Proper Functioning Condition assessments and quantitative 

Multiple Indicator Monitoring in coordination with land health assessments on a 

watershed or landscape-scale basis;

 Collecting core indicator data per the Assessment, Inventory and Monitoring (AIM) 

Strategy to begin devising a quantitative, statistically-robust methodology for landscapescale monitoring;

 Prioritizing riparian treatments in areas functionally at-risk (especially those with high 

resource values), in order to protect sage-grouse and ecologically important plant and 

animal communities;

 Coordinating with the Fisheries Management and Soil, Water & Air Management 

Programs to devise cross-cutting, watershed-scale strategies and policies that will 

address water resource impacts from drought, development, and other stressors;

 Completing on-the-ground restoration projects using funds provided by the Clean Water 

and Watershed Restoration Act;

 Educating youth about the importance and complexity of riparian-wetland resources;
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 51

 Capturing legacy and new assessment and monitoring data into a national geospatial 

dataset in order to more efficiently analyze and report on the conditions and trends of 

riparian resources;

 Coordinating with other BLM programs to work toward a land-treatments national 

geospatial dataset to document the location and effectiveness of treatments on the 

landscape;

 Using the interagency Creeks and Communities Strategy to cooperate with diverse 

stakeholders across jurisdictional boundaries and to provide training and coaching to the 

field; and

 Leveraging Riparian Management Program funds with funds from other Federal, State, 

and local agencies and NGOs to implement on-the-ground projects. 

2015 Program Performance

In 2015, the Riparian Management Program will continue to improve land and water health 

through ongoing management of wetlands and riparian areas. Program activities will contribute 

to three DOI performance measures:

 Assessment and monitoring of riparian areas are crucial activities of the Program, 

directing management actions to those areas not meeting desired conditions as part of 

an adaptive management strategy. The DOI Strategic Plan measures the percentage of 

DOI riparian (stream/shoreline) miles that have achieved desired condition.

 Similar to riparian areas, wetland areas also are assessed and monitored in order to 

direct management actions to areas not meeting desired conditions. Data collected 

during wetland assessment and monitoring are used to measure the percentage of DOI 

acres that have achieved desired conditions where condition is known and as specified 

in management plans. 

 On-the-ground restoration and management activities conducted by the program 

contribute directly to the improvement of degraded riparian areas. These actions are 

essential to meeting the Department’s performance measure concerning the number of 

DOI riparian (stream/shoreline) miles restored to the condition specified in management 

plans. In 2015, the Program will restore approximately 750 miles of riparian area.
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Activity: Land Resources

Subactivity: Cultural Resources Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Cultural Resources 

Management

$000 15,131 15,131 +127 +0 +742 16,000 +869

FTE 116 114 +0 +0 114 +0

Summary of 2015 Program Changes for Cultural Resources Management: ($000) FTE

Inventories and Site Protection +742 +0 

Total +742 +0 

Justification of 2015 Program Changes

The 2015 budget request for the Cultural Resources Management Program is $16,000,000 and 

114 FTE, a program change of +$742,000 and 0 FTE from the FY 2014 enacted level.

Inventories and Site Protection (+$742,000/0 FTE) - The 2015 budget request includes a 

program increase of $742,000 and 0 FTE. The increase will support BLM’s ongoing effort to 

complete and update regional cultural resource inventory overviews that are necessary to plan 

across broad landscapes and address large-scale infrastructure projects. The increase will also 

enable BLM to conduct up to an additional 40 localized on-the-ground inventory and site 

protection and stabilization projects, allowing BLM to better fulfill its statutory requirements for 

inventory and protection of heritage resources.

Program Overview

The BLM is responsible for the largest, most diverse and scientifically important aggregation of 

cultural, historical, and paleontological resources on the public lands, as well as the museum 

collections and data associated with these heritage resources. These cultural resources 

represent all major periods, events, and communities in the broad sweep of human habitation in 

the West over a 10,000-year period, while paleontological, or fossil, resources represent the 

development of life on Earth and paleoenvironments over the last 1.5 billion years. 

These heritage resources are managed to 

ensure the cultural, educational, aesthetic, 

inspirational, and scientific values are 

preserved, and the recreational and economic 

benefits realized for today’s communities as well 

as future generations in compliance with Federal 

laws and regulations. 

The program also provides expertise and 

capabilities to facilitate compliance with Section 

106 of the National Historic Preservation Act 

(NHPA) required for other BLM programs and 

land-use proponents to implement proposed 

The BLM’s heritage resources include:

 358,500 recorded cultural properties

 4,177 cultural properties directly protected

 87 historic properties listed on the National 

Register and 41,000 properties eligible for 

listing

 4,000 monitored archaeological sites

 421 maintained historic structures

 19,600 recorded paleontological localities

 10 million documented artifacts and 

specimens in 143 museums and 

universities.
2015 Budget Justifications Bureau of Land Management

Page VII - 54 Chapter VII – Management of Lands and Resources

actions on the public lands that will effect 

historic properties, such as energy 

development, recreation, grazing, and other 

planned activities. Thirteen thousand landuse proposals are reviewed annually for 

potential effects to historic properties. 

Compliance costs are funded by the 

benefitting subactivity program or the 

proponent. The tools and processes 

developed by the Cultural Resources 

Management Program streamline the 

compliance process, providing significant 

cost-savings and efficiencies.

The program:

 Manages and protects archaeological sites and historic properties as directed by the 

Archaeological Resources Protection Act (ARPA) and NHPA, including inventorying the 

public lands, stabilizing and monitoring sites

 Manages and protects paleontological localities and implements the Paleontological 

Resources Preservation subtitle of the Omnibus Public Lands Act of 2009 (PRPA), 

including inventorying the public lands for fossils, and stabilizing and monitoring localities 

 Curates the 10 million artifacts, specimens, and associated records in the BLM’s three 

museum facilities and in coordination with the 140 State, tribal, and non-profit partner 

museums and universities

 Facilitates Government-to-Government consultation with Indian Tribes and Alaska 

Native Governments concerning traditional tribal activities and places of special meaning 

on the public lands, such as sites of religious significance

 Complies with the Native American Graves Protection and Repatriation Act (NAGPRA) 

to inventory and repatriate native human 

remains and cultural items held in collections 

and respond to new discoveries on the public 

lands

 Develops and implements educational and 

interpretative opportunities for the public to 

engage with cultural and paleontological 

resources

 Facilitates academic and scientific research on 

cultural and paleontological resources to 

enhance scientific understanding and support 

decision-making

Critical Factors – The program faces a broad range 

of challenges and critical factors, including: 

 Increased development of energy resources 

and transmission facilities, and the 

opportunities for regional mitigation challenge 

the BLM to compile and synthesize information 

at a broad scale and provide efficient and 

Regional Cultural Resource 

Inventory Overviews

The landscape approach and the 

increasingly large-scale projects 

planned on the public lands 

necessitates that the BLM maintains 

high-level, comprehensive, regional 

overviews of cultural resources that 

synthesize available information and 

analysis at a broad scale. BLM has the 

tools and processes for meeting this 

need and will employ these to complete 

or update overviews in key areas. 

These inventory overviews help identify 

cultural resources on the ground, inform 

sampling strategies and predictive 

modeling, identify areas where cultural 

resource conflict may occur, and 

provide a framework for National 

Register evaluations. They are meant 

to significantly reduce the cost of 

subsequent projects or planning efforts.

Inventory and Protection Projects

Most heritage projects are accomplished in 

partnership with regional and local universities 

and community groups, enabling the agency to 

leverage funds with matching partner resources. 

Recent reductions in funding have made 

maintaining partnerships difficult or stalled

ongoing projects, as well as resulted in decreases 

in core performance metrics for inventory, 

monitoring, stabilization, and study of priority 

heritage resources, as well as collections 

management and repatriation responsibilities. 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 55

effective Section 106 compliance.

 Theft, destruction, and vandalism of heritage resources because of increased 

accessibility of once-remote public lands, and urban and suburban encroachment.

 Enhanced protection of paleontological resources under the new statutory mandates for 

the management, preservation, and protection of fossils.

 Locating and inventorying Native American cultural items held in museum collections 

and consulting with Indian Tribes to determine disposition leading toward repatriation as 

highlighted by a 2010 audit of NAGPRA compliance by the Government Accountability 

Office.

Identifying and curating artifacts and specimens recovered from the public lands, upgrading 

preservation and documentation for accountability, ensuring access and use for research and 

public benefit, and enhancing partnerships with repositories that curate BLM collections.

Means and Strategies -- The program prioritizes proactive management and achieves 

efficiencies for Section 106 compliance by: 

 Creating efficiencies in the NHPA Section 106 review process by streamlining the 

compliance requirements of other BLM programs and land-use proponents.

 Enhancing tribal participation in decision-making processes through Government-toGovernment consultation with Indian Tribes and Native Alaska villages and corporations, 

and drafting a new tribal consultation and coordination manual and handbook that 

addresses government-to-government consultation across all BLM programs,

 Incorporating the BLM’s landscape approach to public land management to address 

landscape-scale concerns associated with the inventory, assessment, mitigation and 

monitoring of heritage resources

 Maintaining active working relations with State Historic Preservation Offices as part of 

the BLM’s Cultural Resources Data Sharing Partnership in order to share costs to 

automate and digitize site records, and to analyze this information for use in planning 

and expediting review of land use undertakings as part of NHPA Section 106 compliance 

at a significant cost savings for the bureau and proponents;

 Supporting Law Enforcement efforts to curb criminal acts prohibited by ARPA, NAGPRA, 

PRPA and other Federal statutes protecting cultural and paleontological resources;

 Creating partnership, volunteer, and youth opportunities for community-based 

conservation and educational activities

2015 Program Performance

The program goals will continue to facilitate streamlined NHPA Section 106 casework in support 

of priority planned activities on BLM-managed lands, and advising on fostering effective 

Government-to-Government relationships with Indian Tribes. 
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Activity: Land Resources

Subactivity: Wild Horse and Burro Management

2013 Actual 2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Wild Horse & 

Burro Mgmt

$000 71,836 77,245 +193 +0 +2,800 80,238 +2,993

FTE 185 173 +0 +0 173 +0

Summary of 2015 Program Changes for Wild Horse & Burro Mgmt: ($000) FTE

Applied Science - Implementation of NAS Recommendations +2,800 +0 

Total +2,800 +0 

Other Resources Supporting Wild Horse & Burro Mgmt:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

USFS Wild Horses $000 0 1,500 1,500 +0

FTE 0 0 0 +0

Adopt-A-Horse Program $000 76 125 131 +6

FTE 0 0 0 +0

Notes:

- USFS Wild Horses amounts are shown as estimated transfers reported by the U.S. Forest Service in its 2015 Budget 

Justification (March 2014); the annual Interior, Environment, and Related Agencies Appropriation Act appropriates these 

funds in the U.S. Forest Service National Forest System appropriation; Public Law 113-76 authorizes the transfer of these 

funds in 2014

- More information on USFS Wild Horses is found in the U.S. Forest Service Budget Justifications

- Adopt-A-Horse Program amounts are shown as new budget authority derived from a minimum $125 per horse or burro fee 

under a competitive bidding process for adoption of animals gathered from the public lands, conducted under The Wild FreeRoaming Horse and Burro Act of 1971, as amended by the Public Rangelands Improvement Act of 1978 (16 USC 1331-

1340); the annual Interior, Environment, and Related Agencies Appropriation Act appropriates these funds on a current basis

- Amount in 2013 for Adopt-A-Horse Program shown net of sequestration

- More information on Adopt-A-Horse Program is found in the Service Charges, Deposits, & Forfeitures chapter

- Actual and estimated obligations, by year for Adopt-A-Horse Program are found in President's Budget Appendix under the 

BLM section for Service Charges, Deposits, & Forfeitures account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

Justification of 2015 Program Changes

The 2015 budget request for the Wild Horse and Burro (WHB) Management Program is 

$80,238,000 and 173 FTE, a program change of +$2,800,000 and 0 FTE from the 2014 enacted 

level.

Implementation of National Academy of Sciences (NAS) Recommendations 

(+$2,800,000/0 FTE) – The program increase of $2.8 million will be used to continue ongoing 

multi-year research studies focusing on the development of more effective and longer lasting 

fertility control agents, techniques for suppressing population growth, and determining their 

relative efficacy and effects. The BLM received the NAS’s findings and recommendations of the

report in June 2013 and began implementation in FY 2014. Pen trials and field trials for such 

agents will likely begin in late FY 2014 and continue in FY 2015 in designated locations. The 
2015 Budget Justifications Bureau of Land Management

Page VII - 58 Chapter VII – Management of Lands and Resources

additional funding will also allow the BLM to initiate new research studies identified in the NAS 

report, such as identifying sentinel populations. The BLM will continue to develop a scientific 

foundation that will serve as the basis for an ecologically and financially sustainable Wild Horse 

and Burro Program.

Program Overview

The program manages wild horses and burros in accordance with the Wild Free-Roaming 

Horses and Burros Act of 1971. The Act requires the protection, management, and control of 

wild free-roaming horses and burros in a manner designed to achieve and maintain a thriving 

natural ecological balance in combination with other public land uses. The program components 

that support this effort include maintaining an accurate current population inventory; establishing 

and maintaining appropriate management levels (AML); determining whether AMLs should be 

achieved by removal, population growth suppression or other methods such as sterilization; 

providing animals for private care through training, adoption and sales; and conducting research 

to develop sound science for the management of wild horses and burros.

The BLM manages more than 46,000 wild horses and burros on 26.9 million acres of public 

lands. The program is also responsible for monitoring herd and rangeland health and caring for 

approximately 50,000 animals in off-range holding facilities. 

Elements for Reforming and Managing the Wild Horse and Burro Program – The BLM 

remains committed to reforming the program and will continue to implement many of the June 

2013 National Academy of Science report’s recommendations. The following are key elements 

of this reform: 

 Reducing Holding Costs – The BLM will continue efforts to acquire additional, less 

expensive holding facilities and partnership eco-sanctuaries to reduce holding costs for 

wild horses removed from public rangelands; and continue innovative partnerships that 

increase the number of trained animals for placement in private care.

 Continuing Research – The BLM will continue pen and field studies to develop more 

effective population growth suppression methods for contraception and permanent 

sterilization methods such as spay and neuter; continue to assess public knowledge, 

attitudes, preferences and values of wild horse and burro populations and management; 

and evaluate demand for wild horses and burros by adoptees and long-term sanctuary 

providers.

 Developing Herd Management Area (HMA) Sustainability Plans – The BLM will 

develop sustainable plans for HMAs and complexes by continuing land use plan 

revisions, HMA plan development and National Environmental Policy Act (NEPA) 

analysis to enable managing herds on a metapopulation basis; implement nonreproductive HMAs; and use a wide array of population growth suppression methods. 

Each plan would define a management prescription for appropriate population growth 

suppression methods and the maintenance of AML.

 Conducting Population Surveys – The BLM will continue to conduct U.S. Geological 

Survey (USGS) recommended survey methods to acquire more accurate population 

estimates.

 Reducing Population Growth – The BLM will continue applying the most effective 

population growth suppression methods that are supported by sound science and 

registered for non-experimental use.
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Chapter VII – Management of Lands and Resources Page VII - 59

 Strengthening Humane Animal Care and Handling Practices – The BLM will 

continue appropriate policy administration and oversight to strengthen humane animal 

care and handling practices. The BLM will continue the refinement of a Comprehensive 

Animal Welfare Program that establishes program-wide standard operating procedures; 

creates universal training requirements; and institutes a Care and Welfare Assessment 

Tool. This auditing system will help the BLM identify areas of emphasis for future training 

and ensure humane treatment of wild horses and burros.

 Promoting Volunteerism in the Management of Wild Horses and Burros – The BLM 

is increasing public engagement by enhancing outreach, recruiting local volunteers and 

organizations to assist in range and herd monitoring and management, and encouraging 

partnerships to increase ecotourism.

 Continuing Transparency and Openness – The BLM has a fundamental commitment 

to transparency in all facets of the WHB Program. This includes providing public viewing 

opportunities during gather operations and at holding facilities without compromising the 

safety of staff, members of the public, or the animals. The BLM is also committed to a 

proactive public information system that is both accurate and prompt.

Critical Factors – Critical factors affecting the program include:

 Increased fuel and hay costs will continue to affect holding costs;

 Wild horses and burros have few natural predators and herds increase at a rate of 15-20 

percent each year and double in size every four years;

 Current wild horse and burro populations exceed AML in many HMAs;

 Existing contraceptive vaccines are only effective for one year. Vaccine applications on 

Western herds have multiple logistical challenges due to varying terrain, wildness and 

the size of both herds and HMAs;

 Adoptions have steadily declined since 2004 which has increased the number of animals 

in high cost short-term holding;

 Lifetime care for unadopted animals in short-term holding is approximately $46,000 per 

animal; and

 Public scrutiny of gather and removal methods has increased the public profile of the 

program. The BLM is experiencing increased litigation, correspondence, Freedom of 

Information Act requests and the need to provide additional personnel at gathers to host 

public and media visitation, all resulting in added expenses.

In response to these critical factors, the BLM will conduct removals at a substantially 

reduced level until holding costs can be reduced by maintaining fewer numbers in holding or 

less expensive capacity such as long-term pastures and partnership eco-sanctuaries are 

secured. Removals will primarily occur in response to public health and safety (i.e., animals 

on the highway, in agricultural fields); private land encroachment; and court orders.
2015 Budget Justifications Bureau of Land Management

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Comparison of Removals, Adoptions, and Animals in Holding10, by Fiscal Year

2015 Program Performance

In 2015, the BLM will continue to permanently remove a very small number of wild horses and 

burros from the range (1,000, the same as projected in 2014), continue programmatic and sitespecific planning and NEPA to implement non-reproductive herds and greater population growth 

suppression application. The Bureau will also conduct population surveys, continue population 

growth suppression research, continue implementing the comprehensive animal welfare 

program, continue population growth suppression applications, and continue partnerships to 

increase adoptions and reduce short-term holding costs by acquiring less expensive additional 

long-term holding contracts and eco-sanctuaries. Additional planned performance for 2015

includes:

 Reduce holding costs by transferring animals from short-term facilities to newly acquired, 

less expensive eco-sanctuaries and long-term holding contracts;

 Continue research to develop contraception and permanent sterilization methods such 

as spay and neuter, that may include studying the effects on herd genetics, animal 

behavior and rangeland use;

 Continue land use plan revision, herd management area plan development and NEPA 

analysis to develop HMA sustainability plans;

 Continue to conduct USGS recommended population surveys to obtain more accurate 

population estimates;

 Continue applying the most effective population growth suppression methods that are 

supported by sound science;

 Conduct fewer removals, primarily limiting removals to those needed in response to 

public health and safety issues (i.e., animals on the highway, in agricultural fields); 

private land encroachment; and court orders;

 

10 Animals in holding at end of fiscal year

0

5,000

10,000

15,000

20,000

25,000

30,000

35,000

40,000

45,000

50,000

2012 2013 2014 (Est) 2015 (Est)

Total Removals

Animals in Holding

Adoptions
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 61

 Increase partnerships with NGOs and correctional institutions to increase the number of 

trained animals for placement in private care;

 Continue herd management/rangeland health monitoring to support AML evaluation;

 Continue compliance inspections of previously adopted animals;

 Develop and conduct comprehensive animal welfare program training for transportation, 

short and long term holding and adoption events and audits for gathers; and

 Continue the maintenance of water developments on public lands.
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Wildlife and Fisheries 

Management 

 

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Chapter VII – Management of Lands and Resources Page VII - 63

Activity: Wildlife and Fisheries Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Wildlife Management $000 48,606 52,338 +251 +0 +0 52,589 +251

FTE 232 225 +0 +0 225 +0

Fisheries Management $000 12,530 12,530 +96 +0 +0 12,626 +96

FTE 87 86 +0 +0 86 +0

Total, Wildlife & Fisheries $000 61,136 64,868 +347 +0 +0 65,215 +347

FTE 319 311 +0 +0 311 +0

Notes: The Miscellaneous Trust Funds, Wildlife & Fish Conservation and Rehabilitation (Sikes Act) 

current mandatory appropriation is a collaborative activity of the Wildlife and Fisheries 

Management program. The 2014 enacted amount (post-sequester) for Wildlife & Fish 

Conservation and Rehabilitation (Sikes Act) is $0.329 million. The 2015 President's budget 

request for Wildlife & Fish Conservation and Rehabilitation (Sikes Act) is $0.354 million.

More information on these collaborative activities is found in the Miscellaneous Trust Funds 

chapter.

Justification of 2015 Program Changes

The 2015 budget request for the Wildlife and Fisheries Management activity is $65,215,000 and 

311 FTE. 

Activity Description

The Wildlife and Fisheries Management activity maintains and restores fish, wildlife, and their 

habitats by conserving and monitoring habitat conditions, conducting inventories of fish and 

wildlife resources, and developing cooperative management plans, while providing for 

environmentally responsible recreation and commercial uses. Funding for this program supports 

the staff that develops program policy and projects at all levels within the BLM. Management 

actions emphasize on-the-ground and in-the-water actions that measurably increase the health 

of fish and wildlife populations to sustain recreational and commercial uses that enhance or 

maintain many local economies in the West. In addition, these actions reduce the need to 

federally list species.

This activity supports Cooperative Landscape Conservation activities and the Healthy 

Landscapes Program by improving the health of watersheds and sustaining biological 

communities. The overall goal of the Fisheries Management and Wildlife Management 

programs is to restore and maintain proper functioning conditions in aquatic, riparian, wetland 

and upland systems managed by BLM, with the goal of providing suitable conditions for 

biological communities to flourish. The 2015 Budget includes $15.0 million from base funding 

that is devoted to our key initiative: implementing broad sage-grouse conservation and 

sagebrush biome restoration activities.

The lands that the BLM manages include numerous wildlife habitat types across a large 

proportion of America’s western landscapes, including major portions of all American arid
2015 Budget Justifications Bureau of Land Management

Page VII - 64 Chapter VII – Management of Lands and Resources

ecosystems, including the sagebrush biome, and portions of the Colorado Plateau. The BLM is 

also responsible for managing 15 million acres of short and mid-grass prairies and nearly 55 

million acres of forest and woodland habitats. This habitat includes 43 million acres of elk 

habitat and 131 million acres of mule deer habitat. The BLM manages 23 million acres of 

bighorn sheep habitat, which include most of the desert bighorn sheep habitat. In addition, the 

BLM's diverse land base includes over 117,000 miles of fishable streams and rivers, over three 

million acres of lakes and reservoirs, and an abundance of wetlands. Because of their isolation, 

BLM lands include many of America’s rarest habitats, which support many rare plant and animal 

communities.
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Chapter VII – Management of Lands and Resources Page VII - 65

Activity: Wildlife and Fisheries Management

Subactivity: Wildlife Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested

Amount

Wildlife Management $000 48,606 52,338 +251 +0 +0 52,589 +251

FTE 232 225 +0 +0 225 +0

Notes: The Miscellaneous Trust Funds, Wildlife & Fish Conservation and Rehabilitation (Sikes Act) 

current mandatory appropriation is a collaborative activity of the Wildlife Management program. 

The 2014 enacted amount (post-sequester) for Wildlife & Fish Conservation and Rehabilitation 

(Sikes Act) is $0.329 million. The 2015 President's budget request for Wildlife & Fish 

Conservation and Rehabilitation (Sikes Act) is $0.354 million.

More information on these collaborative activities is found in the Miscellaneous Trust Funds 

chapter.

Justification of 2015 Program Changes

The 2015 budget request for the Wildlife Management Program is $52,589,000 and 225 FTE.

Program Overview – Wildlife Management

The BLM manages more wildlife habitat than any other Federal agency. Over 3,000 species of 

wildlife occur on the BLM’s more than 247 million acres, dispersed over some of the Nation’s 

most ecologically diverse and essential wildlife habitat. BLM-managed lands are vital to support 

healthy populations of big game, upland game birds, waterfowl, and hundreds of species of nongame birds, mammals, amphibians, reptiles, and insects. 

The BLM Wildlife Management Program is responsible for maintaining, restoring, and 

conserving wildlife habitat as an integral part of the BLM multiple use mission and priorities that 

include:

 Implementing and maintaining habitat improvement projects;

 Implementing conservation actions in support of sensitive species and their habitats;

 Monitoring to ensure the effectiveness of habitat management actions;

 Collecting inventory data to provide a solid foundation to support Land Use Planning and 

ensure Land Use Plan implementation; and

 Implementing on-the-ground habitat conservation and restoration treatments on a 

landscape scale in priority focal areas.

Critical Factors – The BLM manages over 50 percent of the Nation’s Greater Sage-Grouse 

habitat and any other wildlife species including Mule Deer, Pronghorn Antelope, Pygmy Rabbit, 

Brewer’s Sparrow, Sage Sparrow and Sage Thrasher also depend on sagebrush communities 

for all or a significant portion of their life cycle requirements.

Wildlife habitat loss and fragmentation continue to occur, resulting in significant declines for 

many wildlife species. Beyond reducing available surface water and forage for wildlife, drought 

can have a profound influence on wildfire cycles, which can alter habitat conditions over large 
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areas for many years. Millions of acres of sage-grouse habitat have burned since 2012. 

Restoring sage-grouse habitat after fire is a complex and difficult undertaking.

Authorization of land uses that affect wildlife habitat have significantly increased in conjunction 

with new energy initiatives. 

Means and Strategies

 Since 2010, the BLM has been conducting rapid ecoregional assessments (REAs) to 

address the management of wildlife and habitat resources at a scale equivalent to the 

intensified broad-scale land use pressures and associated stressors, including 

catastrophic wildfire and associated degradation and conversion of native vegetation 

communities, disease, as well as the compounding effects of land health stressors. The 

first results from these assessments were received in 2012.

 The BLM is working to standardize and integrate data across landscapes and 

jurisdictions to gain a fuller understanding of changes to wildlife populations across 

geographic regions and better coordinate actions to mitigate species decline. 

 Once completed, the REAs will aid in identification of the highest priority areas for 

wildlife habitat protection and enhancement at an ecoregional scale consistent with the 

range and distribution of many wildlife species, transcending currently defined 

administrative boundaries.

 The majority of species and habitats present on BLM lands do not occur exclusively on 

lands administered by the BLM. Additionally, BLM land ownership is not spatially 

contiguous, both at the regional and site scales. Therefore, the BLM must work closely 

with its partners across jurisdictional boundaries to ensure that wildlife conservation 

measures applied on BLM lands are effective. The BLM has a memorandum of 

understanding (MOU) in place with the Western Association of Fish and Wildlife 

Agencies (for sagebrush habitat management), a MOU with the Association of Fish and 

Wildlife Agencies (for coordination of energy and wildlife issues) and MOUs pledging 

BLM support in the North American Bird Conservation Initiative, Partners in Amphibian 

and Reptile Conservation and the North American Pollinator Protection Campaign. As a 

result of these MOUs, the BLM has:

o Improved coordination and collaboration with important partner organizations 

including Federal, State, tribal and non-governmental organizations;

o Supported development and implementation of standardized avian monitoring 

protocols to ascertain population trends across jurisdictional boundaries; and

o Developed standardized regionally-specific habitat management guidelines for 

reptile and amphibian habitats that have been distributed to all BLM field offices;

 Consistent with BLM policy direction, the BLM works closely with State fish and wildlife 

agencies on wildlife resource issues, particularly 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.

Sage-grouse Habitat Management and Monitoring – In 2015, the BLM will implement a 

broad suite of habitat management actions to support the conservation of greater sage-grouse. 

The BLM has been a leader in developing a comprehensive national sage- grouse conservation 

strategy in partnership with the States, USDA Forest Service and other Federal agencies. Using 

an adaptive management approach, the BLM will carry out an extensive program of treatments 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 67

to improve sage-grouse habitat quality, reduce the risk of catastrophic wildfires and minimize 

the spread of invasive, non-native grasses.

Reducing the Impacts of Energy Development on Wildlife and Habitats - The BLM has 

been at the forefront in establishing landscape-scale strategies and project-scale Best 

Management Practices to reduce the impacts of energy development on fish, wildlife, and their 

habitats. Working closely with State and Federal land management agencies, the BLM is 

developing a landscape-scale approach to mitigation that will enable compensatory mitigation to 

be sited where the greatest conservation benefits can be achieved on behalf of the resource 

impacted by development activities. 

 
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2015 Wildlife Management Program Performance

In 2015, the BLM’s Wildlife Program will:

 Conduct an extensive set of sage-grouse conservation activities;

 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 provide an understanding 

of the range and distribution of priority species, to describe existing conditions, and to 

determine if management decisions have been implemented and objectives are being 

met; and

 Maintain and enhance partnerships with States, non-government agencies, and sister 

Federal agencies to continue to support rural community economies through game and 

non-game habitat management where the use and appreciation of these species is a 

high value component of local economies.

Program Overview – Plant Conservation Program

Public lands contain a diversity of native plant communities that are the habitats for fish, plants, 

pollinators and wildlife such as the sage-grouse and desert tortoise. These native plant 

communities make up over 50 ecoregions across the BLM and each ecoregion contains native

plants that have adapted to those environments. The BLM Plant Conservation Program is 

responsible for protecting, maintaining and restoring Western native plant communities and rare 

plants on public lands. The Program provides national leadership in seed collection, seed 

conservation, seed procurement and storage, and native plant materials development/use for 

restoration and rehabilitation of public land. In addition, the Plant Conservation Program is 

responsible for rare plant work.

The Plant Conservation Program consists of the following elements:

 Identifying, evaluating, and protecting rare plants on public lands, including NLCS units.

 Understanding the effects of climate change on native plant species and native plant 

communities on public land.

 Developing genetically appropriate native plant materials for restoring and maintaining 

habitat for sage-grouse and other animal and plant species.

 Providing leadership and infrastructure on native plant materials development by 

coordinating with all BLM programs and by establishing ecoregional native plant 

programs to ensure locally adapted native plant material needs are met. 

 Providing national leadership for Seeds of Success.

 Developing seed transfer zones and guidelines.

 Coordinating a national network of seed storage warehouses with environmentally 

controlled conditions to protect our seed investment.

 Monitoring the effectiveness of native plant materials that have been developed.

 Implementing on-the-ground habitat conservation and restoration treatments on a 

landscape scale.
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Page VII - 70 Chapter VII – Management of Lands and Resources

 Enhancing partnerships and volunteer opportunities for plant conservation. 

Seeds of Success is the Bureau’s national seed collection program and is the foundation of the 

native plant materials development process. Over 16,000 native seed collections have been 

made since 2001 when Congress directed the BLM to establish a Native Plant Materials 

Development Program. The number of seed collection actions has remained relatively stable 

(see graph below) except in 2010, due to additional funds provided through the American 

Recovery and Reinvestment Act.

Annual Seed Collections

Critical Factors – There are a number of external factors such as climate change, drought, and 

wildfire affecting native plant communities across the BLM that will require BLM managers to 

reallocate resources and reevaluate priorities. There are also a number of external factors 

related to the development of native plant materials that will require managers to reallocate 

resources to ensure that the diversity of seed types (species) and the quantity of high quality 

native seed is available. Some factors that will have long-standing impacts include:

 The effects of landscape health stressors such as drought, disease, catastrophic wildfire, 

and urban growth and development are altering native plant communities across the 

West. As rainfall and temperatures change, native plant species and communities may 

not adapt as fast as the environment changes, thus affecting sage-grouse and other 

species’ ability to survive.

 Healthy, resilient, functioning native sagebrush communities play a significant role in the 

Bureau’s ability to maintain sage-grouse populations in the West. The diversity of native 

forbs and grasses within the sagebrush communities is vital to the survival of sagegrouse. These native plants provide food and shelter for the sage-grouse, especially the 

young chicks.

 Healthy landscapes in the West today are at greater risk due to more intense and 

extended droughts, increasing wildfire frequency, and continuing migration of invasive 

species. Historically, resilient Western native plant communities burned on average 

once every 40 years; however, with monocultures of invasive plants and drought, fire 

frequency is closer to once every five to seven years. Because of these factors, more 

aggressive development of native plant materials are needed for rehabilitation after fire 

and restoration of habitats for fish, plants, pollinators and wildlife. 

 Native plant materials, like agronomic crops, take an average of 10 to 20 years to 

develop as consistent and reliable commercially available seed. Therefore, the BLM 

0

500

1,000

1,500

2,000

2,500

3,000

3,500

4,000

2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 71

needs to plan well ahead for native plant materials to be available for landscape level 

restoration.

 Development of public lands for renewable energy, non-renewable energy, and mineral 

resources requires mitigation efforts to offset loss and fragmentation of native plant 

communities.

 Spread of invasive terrestrial species requires additional monitoring and treatment to 

prevent degradation of functioning ecosystems and native plant and animal 

communities.

Means and Strategies – The Plant Conservation Program coordinates with other BLM 

programs and partner organizations to achieve integrated vegetation management at the 

landscape level. To better achieve program goals and provide improved management of public 

lands, the BLM has adopted a corporate approach to managing ecosystem functions and 

services by emphasizing shared on-the-ground vegetation goals across programs, processes, 

and scales. The Washington Office forestry, rangeland management, riparian management, 

plant conservation, invasive weeds, and fire rehabilitation programs have been combined into a 

single, vegetation management division. This configuration has made policy development more 

collaborative with the vegetation specialists working together to develop policy at a landscape 

scale. In this coordinated effort, the Plant Conservation Program is addressing critical factors 

through multiple activities, including:

 Supporting the Department’s youth education investments and the America’s Great 

Outdoors (AGO) Initiative by employing recent college graduates in the biological and 

The Plant Conservation Program has made approximately 2,000 native seed collections within sagegrouse priority habitat and sage-grouse general habitat. These collections will be used to develop 

genetically appropriate native plant materials for restoration on sage-grouse habitat.
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Page VII - 72 Chapter VII – Management of Lands and Resources

environmental sciences, through the Conservation and Land Management Internship 

Program. Over 1,000 recent college graduates have gone through this program.

 Educating America’s youth through the development of a high school curriculum on 

native plants. The BLM will use this model to develop elementary and middle school 

curricula for younger students.

 Supporting the renewable and conventional energy programs by encouraging use of 

local genotypes and developing native plant materials for use in reclamation projects. 

http://www.blm.gov/wy/st/en/programs/pcp/mgmt.html.

 Identifying national priority focal areas for native plant community conservation and 

restoration, as well as developing native plant materials for management activities at the 

eco-regional scale.

 Coordinating development of native plant materials for restoration with step-down 

strategies developed from the BLM’s Landscape Approach and implementing restoration 

within Healthy Landscapes focal areas.

 Supporting ecoregional native plant materials development programs, such as the 

Colorado Plateau Native Plant Program and the Great Basin Native Plant Program, to 

develop locally adapted seed for commercial availability. 

 Leveraging Plant Conservation Program funds with other Federal, State, and local 

agencies and NGOs to implement on-the-ground projects and conduct research in native 

plant development and restoration techniques.

2015 Plant Conservation Program Performance

In 2015, BLM will continue to lead the Interagency Native Plant Materials Development 

Program, including Seeds of Success, Plant Conservation Alliance Federal Committee and 

regional interagency native plant materials development programs in the Colorado Plateau, 

Great Basin, Pacific Northwest, Wyoming Basin and Mohave Desert. These programs will work 

with partners to focus research on native plant materials development and to get more diversity 

of native plant materials to the growers in the various ecoregions.

The BLM will implement a National Seed Strategy developed in 2014, which will assess the 

BLM seed use, stabilize the BLM seed requests, integrate native seed collection across the 

Bureau, and address seed procurement and storage to ensure the highest quality seed for 

restoration and rehabilitation.

The BLM Plant Conservation Program worked with The Institute for Applied Ecology to develop 

a protocol for working with State prisons to grow locally sourced sagebrush plants to support 

restoration of greater sage-grouse habitat. A pilot project to produce 10,000-20,000 sagebrush 

plants was established in 2014 at the Snake River Correctional Facility in eastern Oregon, and 

the plants grown at this facility will be planted into a site damaged by wildfire on nearby BLM 

lands. The Plant Conservation Program will use the protocol and pilot project to address the 

lack of locally adapted sagebrush seedlings for restoration.
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Chapter VII – Management of Lands and Resources Page VII - 73

Activity: Wildlife and Fisheries Management

Subactivity: Fisheries Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Fisheries Management $000 12,530 12,530 +96 +0 +0 12,626 +96

FTE 87 86 +0 +0 86 +0

Notes: The Miscellaneous Trust Funds, Wildlife & Fish Conservation and Rehabilitation (Sikes Act) 

current mandatory appropriation is a collaborative activity of the Wildlife and Fisheries 

Management program. The 2014 enacted amount (post-sequester) for Wildlife & Fish 

Conservation and Rehabilitation (Sikes Act) is $0.329 million. The 2015 President's budget 

request for Wildlife & Fish Conservation and Rehabilitation (Sikes Act) is $0.354 million.

More information on these collaborative activities is found in the Miscellaneous Trust Funds 

chapter.

Justification of 2015 Program Changes

The 2015 budget request for the Fisheries Management Program is $12,626,000 and 86 FTE.

Program Overview

Program Components – The BLM Fisheries Program assesses, restores and monitors over 

three million acres of reservoirs and natural lakes and 117,000 miles of fish-bearing streams of 

national ecological, cultural, and recreational importance. These fish-bearing waters function in 

diverse landscapes, serve as a good indicator of ecosystem function, and 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. The BLM Fisheries Management Program is responsible for:

 Maintaining, restoring, and conserving aquatic-related species and habitats consistent 

with the BLM multiple use mission and priorities;

 Implementing lake, wetland, stream, and riparian treatments and projects;

 Assisting in the design of other BLM program activities to ensure fish, aquatic species 

and their habitat are not impacted;

 Monitoring to ensure the effectiveness of management actions, including subsistence 

actions on BLM land in Alaska through the Federal Subsistence Management Program; 

 Participating in angler activities with State fish and game agencies through various 

memoranda of understanding and memoranda of agreement; and

 Implementing stream and wetland conservation and restoration treatments in focused 

areas under the BLM Healthy Landscapes Program.

Critical Factors – The following represent the primary challenges facing the Fisheries Program:

 Land health stressors, such as those associated with climate change, can be key threats 

to fish and fish habitat as they cause 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 affect aquatic resources. The effects of 

these land health stressors place additional strain on aquatic ecosystems. A greater 
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Page VII - 74 Chapter VII – Management of Lands and Resources

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 Powering Our Future initiative will place increasing demands on Fisheries 

Program personnel. The program is working to ensure sites of high potential for energy 

development, and the transmission corridors linking these sites to the energy grid, are 

developed in a responsible manner consistent with the needs of aquatic resources. 

 The licensing and relicensing of hydropower projects creates a significant opportunity to 

direct the development of license conditions to conserve fisheries resources so that 

Federal trust responsibilities are met for the next 30-50 years.

 The program continues to focus on fish-passable culvert replacements. Culvert 

upgrades reconnect high quality habitat for numerous aquatic species. Culvert fish 

passage projects have the ability to return fish to mature, functioning riparian and instream habitats. 

 Threats from legacy road failures are addressed to reduce catastrophic sediment input

from historic, poorly planned roads made of soft fill material, which cannot adequately 

pass downstream water. Ponding occurs as the standing water upstream overtops the 

road, resulting in erosion that the downstream fish habitat with sediment. 

 Fisheries Program personnel, at both the national and State levels, are working with 

counterparts in State and other Federal agencies to continue developing strategies and 

programs to minimize the threats from aquatic invasive species, such as the quagga 

mussel, New Zealand mudsnail, and the zebra mussel. Aquatic invasive species are a 

threat to the viability of native fish communities. They transform entire food webs, have 

the potential to dominate the biological community and have the potential to clog 

reservoir water pipes and reduce needed downstream flow to communities. BLM 

Fisheries Program personnel participate on the Aquatic Nuisance Species Task Force 

and their Western Regional Panel to coordinate aquatic invasive species management 

throughout the West.

 The BLM has completed several Rapid Ecoregional Assessments (REA) to better 

address resource management. Aquatics are a vital component of these assessments, 

which will aid in identification of the highest priority areas for fisheries habitat protection 

and enhancement at an ecoregional scale.

 The BLM is working to standardize and integrate data across landscapes and 

jurisdictions to gain a fuller understanding of changes to fisheries habitat across 

geographic regions and better coordinate actions to mitigate habitat quality reductions.

Means and Strategies – The following represent the primary means by which the Fisheries 

Program plans to meet its current and future challenges:

 Working with other programs to create a lands treatment database 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.

 Continuing to stay active with 10 National Fish Habitat Partnership partner organizations, 

including Reservoir Fish Habitat Partnership, California Fish Passage Forum, Desert 

Fish Habitat Partnership, Driftless Area Restoration Effort, Great Lakes Basin Fish 

Habitat Partnership, Great Plains Fish Habitat Partnership, Mat-Su Basin Salmon 

Habitat Partnership, Southwest Alaska Salmon Habitat Partnership and Western Native 

Trout Initiative;
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Chapter VII – Management of Lands and Resources Page VII - 75

 Combating the ecological and economic affects in many BLM watersheds caused by 

aquatic nuisance species; and

 Assessing aquatic habitat using Trout Unlimited’s modified Conservation Success Index 

methodology. This work is part of the on-going Assistance Agreement and will be 

utilized in BLM watersheds for critical aquatic assessments.

2015 Program Performance

In 2015, 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. 

Approximately 34 percent of Fisheries Management funding ($4.6 million) supports priority fish 

habitat conservation in support of the National Fish Habitat Partnership (NFHP). The Plan is a 

State-led development supported through the Association of Fish and Wildlife Agencies (AFWA) 

in cooperation with key government agencies and conservation partners. The Plan is the most 

comprehensive effort ever attempted to conserve aquatic habitat across the country. The BLM 

is active with 10 NFHP partnerships that serve as primary vehicles for identifying and prioritizing 

habitat actions within the range of inland fish species. The BLM will play a significant role in the 

identification and implementation of these actions. Salmon and steelhead fisheries resources 

will remain a priority for those geographic areas within the range of anadromy.

The BLM Fisheries Management Program will continue to work closely with the Aquatic 

Nuisance Species Task Force, with AFWA and the Western Association of Fish and Wildlife 

Agencies, the Trout Unlimited, the National Fish and Wildlife Foundation, and the American 

Fisheries Society. The Fisheries Management Program will also provide expertise with internal 

programs such as Healthy Landscapes; Assessment, Inventory and Monitoring Strategy; and 

the REAs. All of these initiatives incorporate fisheries resources as essential habitat and as 

indicators of ecosystem health. The Fisheries Management Program will also continue its strong 

relationship with diverse groups for project development, leveraging funding, and personnel 

development.
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Threatened and 

Endangered Species 

Management 

 

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Chapter VII – Management of Lands and Resources Page VII - 77

Activity: Threatened & Endangered Species 

Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Threatened & Endangered 

Species

$000 20,326 21,458 +178 +0 +0 21,636 +178

FTE 154 159 +0 +0 159 +0

Justification of 2015 Program Changes

The 2015 budget request for the Threatened and Endangered Species Program is $21,636,000 

and 159 FTE.

Program Overview

The primary goal of the Threatened and Endangered (T&E) Species Program is to recover 

Federally-listed species and preclude the need to list candidate species. The program also 

provides support for conservation of non-listed, rare plant species. The long-term program 

vision is to achieve species recovery so that protection under the Endangered Species Act 

(ESA) is no longer required and to implement conservation programs for Bureau Sensitive 

plants and Federal candidate species so that listing under the ESA is unnecessary.

Over 420 species listed under the ESA occur on BLM-administered lands. Furthermore, over 

110 candidate species warranting Federal protection are found on BLM lands. BLMadministered lands are recognized as prime habitat for over 1,000 rare plant species and 

provide the only known habitat for more than 450 species of rare or listed plants and animals. 

The BLM’s successful conservation of these species requires implementation of the following 

tasks: 

 Cooperative planning with other stakeholders in the preparation of recovery plans and 

development of conservation strategies for targeted species;

 Implementing actions identified in species conservation and recovery plans; 

 Conducting inventories for newly listed, proposed and candidate species; and,

 Monitoring species populations to determine if objectives identified in species conservation 

and recovery plans are being met.

Critical Factors – The number of Federally listed species is steadily growing due to increasing 

conflicts with a resource use and the compounding impacts of natural phenomena such as fire, 

drought, and climate change. The BLM is committed to prevent extirpation of these species on 

BLM-administered lands and to further recovery and conservation of Federally-listed and 

candidate species. 

Means and Strategies – The following are strategies used by the BLM to manage the program:

BLM T&E Species Recovery Funding – In 2010, the BLM established the Threatened and 

Endangered Species Recovery Fund. This fund awards approximately $1.0 million annually, on 

a competitive basis, to recovery actions that culminate in a delisting or down-listing of a 
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Threatened or Endangered species or precludes the need to list a candidate species. In just the 

first few years, the BLM has achieved success, with the delisting of the Maguire Daisy and the 

proposed delisting of the Inyo California Towhee. Furthermore, the BLM’s commitment to 

candidate species conservation has precluded the need to list the Sand Dune Lizard, and the 

Coral Pink Sand Dunes Tiger Beetle. The benefits of this initiative have been recognized by 

other Federal agencies and their desire to collaborate with the BLM on this initiative will greatly 

increase our ability to recover and conserve T&E species and their habitats beyond jurisdictional 

boundaries. The targeted investment in recovering species, so they are no longer in need of 

Federal protections, meets a desired goal of sustainability and ecological integrity of BLM lands, 

but also begins a shift from focusing on reactive regulatory obligations to being proactive 

stewards of the land.

Cooperative Landscape Conservation Initiative – The Cooperative Landscape Conservation 

Initiative and the BLM’s Healthy Landscapes program will help the BLM’s T&E Program assess, 

manage, and provide for the conservation of Federally-designated species in light of impacts 

such as drought, wildfire, and invasive species encroachment. Eco-regional assessments and 

Landscape Conservation Cooperative efforts provide a landscape view in addressing the health, 

resilience and intactness of ecosystems. The T&E Program provides support for these

initiatives by assisting with the development of rapid eco-regional assessments; listed species 

occurrence, distribution and critical habitat data on BLM lands; and collaborating with both intra

and interagency outreach efforts.

Youth in the Great Outdoors Initiative – The T&E Program implements on-the-ground projects 

that either have an educational or outreach component to engage local youth or employ youth in 

conservation activities. The T&E Program will continue to hire recent college graduates in the 

biological sciences as part of the Chicago Botanic Garden’s Conservation and Land 

Management Internship Program.

America’s Great Outdoors – The T&E Program offers key criteria in selecting projects within the 

America’s Great Outdoors initiative. The National Landscape Conservation System (NLCS) is 

an integral network of biologically diverse, wide ranging landscapes and ecosystems. Of the 

Federally protected species and rare plants that occur on BLM lands, 155 species occur only 

within NLCS designated lands. An additional 114 species have at least 50 percent of their 

populations represented on NLCS lands. The NLCS is integral 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 the development of recovery plans, written 

under the leadership of the FWS or the National Marine Fisheries Service (NMFS). 

Implementation of recovery actions identified in these plans typically involves collaboration with 

such partners as State fish and game, other Federal, and non-governmental organizations 

(NGOs). 

An example of this collaboration is the BLM’s participation in the Black-Footed Ferret Recovery 

Implementation Team Executive Committee. Members include: the FWS, the U.S. Geological 

Survey, the National Park Service, the U.S. Forest Service, The Wildlife Society, The Nature 
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Chapter VII – Management of Lands and Resources Page VII - 79

Conservancy and several other NGOs and 

Federal and State Agencies. Efforts include 

the development of a sylvatic oral plague 

vaccine to protect ferrets and their prey, the 

prairie dog, against plague infection. The BLM 

continues to offer assistance in providing 

locations to implement the safety and efficacy 

trials for the vaccine’s use in the field. The 

BLM also continues to increase its involvement 

in identifying appropriate areas where prairie 

dog expansion or re-colonization can take 

place and identifying potential sites for blackfooted ferret reintroduction

Compliance and Consultation – In addition to recovery planning and implementation, 

consultation under Section 7 of the ESA is a significant BLM endangered species management 

responsibility. Under the ESA, the BLM must consult with the FWS or the NMFS whenever it 

determines that an action it authorizes, funds, or carries out may affect a listed species. BLM 

completes approximately 600 formal and informal consultations annually under Section 7 of the 

ESA. The monitoring inventory, and recovery of Federally-listed species, supported by the T&E 

program, offer many benefits to other BLM priority portfolio programs such as: energy 

development, mineral extraction, range management, horse and burro, forestry, and recreation. 

The inventory and monitoring information collected informs the consultation process, and the 

recovery efforts for Federally-listed and candidate species bolsters the resiliency of the species 

on the ground, which may accommodate more opportunities for multiple use. 

2015 Program Performance

In 2015, the BLM T&E Program will:

 Continue to emphasize the completion of recovery tasks as identified in species recovery 

plans;

 Continue to focus on the program’s primary goal of completing actions that lead to species 

recovery through the Threatened & Endangered Species Recovery Fund;

 Continue to document the program’s accomplishments and efforts towards species recovery 

through the Special Status Species Tracking System, a reporting system developed by 

BLM’s National Operation Center;

 Continue to inventory and monitor habitat on the millions of BLM acres where Federallylisted species are known or suspected to occur; and

 Continue to leverage additional dollars, equipment, and labor from Federal and non-Federal 

partners with shared T&E species recovery objectives.
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Recreation 

Management 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 81

Activity: Recreation Management

Justification of 2015 Program Changes

The 2015 budget request for the Recreation Resource Management Activity is $68,457,000 and 

533 FTE, a program change of +$900,000 and -8 FTE from the 2014 enacted level.

Activity Description

The Recreation Management Activity supports efforts to:

 Provide resource-related recreational opportunities for a wide range of activities;

 Furnish quality visitor services;

 Provide a diversity of recreation facilities, visitor centers, and competitive activities;

 Identify and protecting wilderness values;

 Assure that the public receives fair market value for any commercial ventures conducted 

on public lands; and

 Collect recreation use and entrance fees in the best interest of the general public.

These responsibilities are encompassed by the Bureau’s strategic goal to provide opportunities 

for environmentally responsible recreation.

The Recreation Management Activity provides:

 Recreation planning and visitor use monitoring;

 Trails, access, and rivers management including off-highway vehicle, public access, and 

comprehensive travel and transportation management;

 Visitor services, information, interpretation and stewardship education;

 Visitor health, safety, and accessibility for persons with disabilities;

 Recreation facility design, operation, and maintenance including visitor centers;

 Recreation and community support partnerships including tourism and marketing;

 Wilderness management in the Nation Landscape Conservation System; and

 Support to partnerships, volunteers, and youth programs.

2013 

Actual

2014 

Enacted

2015 President's Budget Change from 

2014 Fixed 

Cost Transfers Program Changes

Requested 

Amount

Wilderness Management $000 17,300 18,264 +171 +0 +0 18,435 +171

FTE 151 155 +0 -2 153 -2

Recreation Resources 

Management

$000 46,129 48,697 +425 +0 +900 50,022 +1,325

FTE 380 386 +0 -6 380 -6

Total, Recreation 

Management

$000 63,429 66,961 +596 +0 +900 68,457 +1,496

FTE 531 541 +0 -8 533 -8
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Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 83

Activity: Recreation Management

Subactivity: Wilderness Management

2013 

Actual

2014

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Wilderness Management $000 17,300 18,264 +171 +0 +0 18,435 +171

FTE 151 155 +0 -2 153 -2

Justification of 2015 Program Changes

The 2015 budget request for the Wilderness Management Program is $18,435,000 and 153

FTE. 

Program Overview

Program Components – The Wilderness Management Program is a part of the BLM National 

Landscape Conservation System (NLCS). The BLM 15-year NLCS strategy supports the BLM 

multiple-use mission by ensuring that management efforts are focused on conservation, while 

allowing for compatible uses, consistent with the designating legislation or Presidential 

proclamation of the concerned wilderness area. In addition to conservation, the strategy 

emphasizes continued collaboration, public involvement, and youth engagement. Engaging 

local communities to help them foster a sense of shared stewardship and pride in their local 

wilderness is a key part of the Wilderness Management Program. 

The program also contributes to the America’s Great Outdoors goals by:

• Achieving lasting conservation that powers the Nation’s economy, shapes the culture, 

and builds outdoor traditions;

• Reinvigorating the approach to conservation and reconnecting Americans, especially 

young people, to the outdoors; and

• Empowering local communities to accomplish conservation and recreation priorities.

The BLM is required to meet legal requirements for administering the Wilderness Management 

Program while also conserving, protecting, and restoring NLCS values in the 221 Wilderness 

Areas and 545 Wilderness Study Areas under BLM management as defined below:

 Wilderness Areas are undeveloped Federal lands designated by law to be managed to 

protect their wilderness character as defined by the Wilderness Act of 1964. These 

designated areas are generally large, natural and undeveloped landscapes that offer

outstanding opportunities for solitude or primitive and unconfined types of recreation.

 Wilderness Study Areas (WSAs) are roadless areas that contain wilderness 

characteristics and are protected to maintain those characteristics until law designates 

them as Wilderness Areas or releases them for non-wilderness uses. 
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Page VII - 84 Chapter VII – Management of Lands and Resources

The Wilderness Management Program focuses on the protection and conservation of 

wilderness and NLCS values with the following activities:

 Monitoring and preserving wilderness character;

 Managing use and encouraging appropriate wilderness uses;

 Monitoring and managing for noxious weed infestations, trespass activities, and recreation; 

and 

 Restoring impacted areas such as trampled vegetation and eroded soil caused by 

unauthorized off-highway vehicles (OHV) travelling cross-country. 

The National Wilderness Preservation System includes all Wilderness Areas managed by the

U.S. Forest Service (USFS), the BLM, the National Park Service (NPS) and the U.S. Fish and 

Wildlife Service (FWS). It does not include BLM Wilderness Study Areas. The BLM is unique in 

that the vast majority of its Wilderness Areas and WSAs are located in delicate desert 

environments; this adds an important ecosystem component to the National Wilderness 

Preservation System. Millions of people visit these areas annually either on their own or through 

the hundreds of permitted commercial outfitters that assist the public in enjoying these unique 

lands. This use provides significant economic impact to local communities and helps to sustain 

the natural heritage of their wilderness landscapes.

The Wilderness Management Program frequently addresses challenges associated with 

unauthorized uses, such as illegal OHV use, which result in the degradation of wilderness 

character. Managing the wilderness resource requires collaboratively managing these assets 

as part of the larger landscape. After a Wilderness Area is designated, the BLM typically 

spends the first three years marking and mapping the boundary, and providing visitor services 

such as maps and other public information. Subsequent management includes acquiring inholdings from willing sellers, restoring wilderness character where needed, engaging in land use 

planning and monitoring, implementing wilderness management plans, and providing visitor 

services. Wilderness management plans are written for Wilderness Areas to guide long-term

management and protection of wilderness character and involve interdisciplinary land use 

planning. In addition, these plans raise public awareness and understanding of the NLCS, 

cultivate relationships, promote community stewardship of BLM-managed public land, and 

provide for the use and enjoyment of these lands by present and future generations.

Preserving Wilderness Character – Preserving wilderness character is at the heart of the 

BLM’s responsibility to ensure its Wilderness Areas are protected for future generations. The 

interagency strategy for monitoring trends in wilderness character across the National 

Wilderness Preservation System outlines a unified approach for collecting data and will allow 

the identification of trends in wilderness character quality across all wilderness-managing

agencies. The protocol developed to monitor and describe trends in the quality of wilderness 

character will enable the BLM to establish a meaningful measure with verified baseline data for 

use in the future. 

In 2009, the BLM began a five-year process to implement this strategy and complete baseline 

monitoring for 20 percent of BLM Wilderness Areas each year to complete the task for all areas 

by the end of calendar year 2014 – in conjunction with celebrating the 50th anniversary of the 

Wilderness Act. By the end of 2015, and for the first time since the Wilderness Act was passed 

in 1964, the BLM will be able to track trends in wilderness character for all 221 of its Wilderness 

Areas. 
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Chapter VII – Management of Lands and Resources Page VII - 85

Enhancing Scientific Knowledge – BLM Wilderness Areas are playing an increasingly critical 

role in increasing scientific knowledge about a wide array of management challenges. The 

need for scientific research and information continues to increase as new issues are identified,

including the effects of drought, climate change, and other landscape stressors on species 

habitat and migration corridors. New, improved, higher-resolution satellite imagery and aerial 

photography aid in the monitoring of Wilderness Areas and WSAs. This imagery is less 

expensive than complete reliance on ground patrols, maximizing the effectiveness of 

appropriated funds to manage these areas. The BLM is enhancing the role of science 

partnerships in wilderness management and collaborating with our partners to help manage 

BLM Wilderness Areas as a part of larger landscapes.

Developing Partnerships and Engaging People and Communities – Developing 

partnerships in wilderness stewardship is an important aspect of Wilderness Areas and WSAs 

management and allows the BLM to leverage limited resources to achieve management goals. 

The Wilderness Management Program benefits greatly from a volunteer force that provides

thousands of hours of resource monitoring in addition to materials and transportation for specific 

projects. Nearly 100 formal and informal partnerships have been developed to facilitate 

wilderness stewardship activities. Typical examples of work performed by partners in 

Wilderness Areas and WSAs include trail construction and maintenance, invasive species 

eradication and monitoring, interim management monitoring of WSAs, and reclamation and 

restoration activities to create environments that are more natural. The BLM has developed a 

Memorandum of Understanding with the National Wilderness Stewardship Alliance, a national 

organization that is coordinating the establishment of partners and friends groups to assist in 

wilderness stewardship in the National Wilderness Preservation System. Many of these groups 

have strong ties to local communities and can help foster a sense of shared stewardship and 

pride in their local wilderness. 

Connecting Landscapes by Working Collaboratively – The Wilderness Management 

Program benefits greatly by working collaboratively with several crosscutting BLM programs and 

other agencies to achieve larger landscape scale goals. Projects that manage wildlife, fire, 

weeds, and rangeland resources routinely benefit wilderness resources and assist the BLM in 

meeting its legislative requirement. By establishing connections across boundaries with other 

jurisdictions; other Federal, State and local agencies; and private conservation lands, the BLM 

complements and supplements the management of these areas, allowing the BLM to manage 

the Wilderness Areas under its jurisdiction as a part of these larger landscapes and 

strengthening the resilience of all areas.

2015 Program Performance

Monitoring key indicators to determine trends in wilderness resource condition continues to be a 

priority. In 2015, the BLM plans to monitor approximately 8.7 million acres in 221 wilderness

areas. The Bureau will also continue to monitor approximately 12.8 million acres in 544 WSAs

to ensure wilderness characteristics are maintained.

The BLM's highest priority efforts will focus on monitoring trends in the quality of wilderness 

character. BLM uses a standardized methodology and protocol established by the Interagency 

Wilderness Character Monitoring Team—representing the BLM, U.S. Fish and
2015 Budget Justifications Bureau of Land Management

Page VII - 86 Chapter VII – Management of Lands and Resources

Wildlife Service, National Park Service, U.S. Geological Survey, and the U.S. Forest Service—

for monitoring and describing trends in the quality of wilderness character, enabling the BLM to 

establish meaningful measures with verified baseline data for use into the future.

Wilderness management plans are written for Wilderness Areas to guide long-term 

management and protection of wilderness character and involve interdisciplinary effort 

associated with land use planning. As wilderness management plans are completed, work will 

shift to other management activities such as monitoring and protection.

In addition, efforts to update existing wilderness characteristics inventories will continue to be a 

priority workload in 2015.

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
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 87

Activity: Recreation Management

Subactivity: Recreation Resources Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Recreation Resources 

Management

$000 46,129 48,697 +425 +0 +900 50,022 +1,325

FTE 380 386 +0 -6 380 -6

Other Resources Supporting Recreation Resources Management:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Recreation Fees $000 17,491 16,704 18,500 +1,796

FTE 117 117 117 +0

California Off-Highway Vehicle $000 4,861 4,846 5,222 +376

FTE 35 35 35 +0

Recreation Cost Recovery $000 3,731 2,500 2,610 +110

FTE 6 4 4 +0

Notes:

- Recreation Fees amounts are shown as new budget authority derived from recreation fee revenues (nearly all recreation 

fees are kept at the site where they are collected); the Federal Lands Recreation Enhancement Act (Title VIII of Public Law 

108-477) appropriates these funds on a permanent basis

- Amount in 2013 and 2014 for Recreation Fees shown net of sequestration

- More information on Recreation Fees is found in the Permanent Operating Funds chapter

- Actual and estimated obligations, by year for Recreation Fees are found in President's Budget Appendix under the BLM 

section for Permanent Operating Funds account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

- California Off-Highway Vehicle amounts are shown as new budget authority derived from a written commitment by a State 

government to provide an identified amount of money in support of a project on a reimbursable basis; the Omnibus 

Appropriations Act, 2009, Division E -- Department of Interior, Environment, and Related Agencies Appropriations Act (Public 

Law 111-8) appropriates these funds on a current basis

- Amount in 2013 and 2014 for California Off-Highway Vehicle shown net of sequestration

- More information on California Off-Highway Vehicle is found in the Miscellaneous Trust Funds chapter

- Actual and estimated obligations, by year for California Off-Highway Vehicle are found in President's Budget Appendix 

under the BLM section for Miscellaneous Trust Funds account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

- Recreation Cost Recovery amounts are shown as new budget authority derived from revenue from Special Recreation 

Permits to authorize group activities or recreation events; the annual Interior, Environment, and Related Agencies 

Appropriation Act appropriates these funds on a current basis

- Amount in 2013 for Recreation Cost Recovery shown net of sequestration

- More information on Recreation Cost Recovery is found in the Service Charges, Deposits, & Forfeitures chapter

- Actual and estimated obligations, by year for Recreation Cost Recovery are found in President's Budget Appendix under 

the BLM section for Service Charges, Deposits, & Forfeitures account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

Justification of 2015 Program Changes

The 2015 budget request for the Recreation Resources Management Program is $50,022,000 

and 380 FTE, a program change of +$900,000 and -6 FTE from the 2014 enacted level. 

Enhance Core Capability (+$900,000/-6 FTE) - This request includes additional funds for 

inventory, planning, implementation and monitoring travel and transportation networks in sagegrouse habitats; and for visitor assessments that would help the BLM better measure social and 

economic impacts that benefit local communities. The additional increase would allow BLM to 
2015 Budget Justifications Bureau of Land Management

Page VII - 88 Chapter VII – Management of Lands and Resources

improve recreation areas and enhance current visitor services in the high demand and urban 

growth areas of Utah, California, Colorado, Arizona, Oregon, Nevada and Idaho by providing 

maps and other visitor information materials, improving visitor safety, for example, through 

enhanced law enforcement, and providing additional seasonal employees to conduct 

interpretation activities and perform other services aimed at improving visitor satisfaction.

Program Overview

Public lands managed by the BLM provide some of the most diverse outdoor recreation 

opportunities on Federal lands in the western U.S. The Bureau’s Recreation and Visitor 

Services Program oversees a broad and complex set of recreation related and social 

management activities and programs. The Recreation Management Program is responsible for 

the following components: 

 Recreation Planning – Evaluating and assessing a wide range of social, economic, and 

recreational uses of public lands through the land use planning (LUP) process. 

Recreation Area Management Plans are prepared to implement LUP decisions in 

designated recreation management areas. 

 Travel and Transportation Management – Determining public and resource use 

access needs through the LUP process. The BLM travel and transportation 

management planning process establishes designations and restrictions for all modes of 

transportation including motorized and non-motorized uses. 

 Visitor Safety – Providing opportunities for safe recreational activities for the public, as 

well as to educate and encourage safe behavior.

 Facility Management and Accessibility – Providing daily operation and routine 

maintenance of over 3,650 recreation sites and 380 Special Recreation Management 

Areas including campgrounds, picnic and day use areas, visitor centers, waysides and 

kiosks, watchable wildlife sites, historic buildings and lighthouses, trailhead access 

points, and thousands of miles of rivers and trails. As communities near public lands 

grow in the West, visitation and demands for new trails and visitor service facilities 

increase each year. In addition to operating facilities, the BLM is responsible for 

ensuring facilities and programs meet accessibility standards for persons with 

disabilities. 

 River Management – Managing over 500 segments and about 9,000 miles of navigable

rivers and lakes along with associated issues related to water quality, permitting, 

education and interpretation, visitor safety, enforcement patrols, and resource 

management. Of these navigable rivers and lakes, 320 segments and 6,600 miles have 

significant recreational value. A portion of the funds for river management also serves 

the needs of Wild and Scenic Rivers, managed by the National Landscape Conservation 

System (NLCS).

 National Scenic & Historic Trails – Monitoring over 4,500 miles of 10 National Historic 

Trails and is responsible for over 600 miles of three National Scenic Trails. 

 Hunting, Fishing, and Shooting Sports – Implement important provisions of Executive 

Order 13443, Facilitation of Hunting Heritage and Wildlife Conservation, which directs 

agencies to facilitate the expansion and enhancement of hunting opportunities and the 

management of game species and their habitat.

 Youth – Overseeing components of the Bureau’s Youth in the Great Outdoors initiative, 

a significant component of the America's Great Outdoors (AGO) initiative. The 

Recreation program also provides oversight of the "Take it outside!" program to promote 

outdoor activities for kids. The BLM will continue to promote healthy and active lifestyles 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 89

and better engage the next generation as public land stewards for natural resource 

conservation.

 Visual Resources – Analyzing, managing, and ensuring protection of visual resources 

to maintain valued landscape aesthetic character.

 Recreation Permits, Fees, and Commercial Leases – Reviewing, implementing, and 

monitoring over 3,200 special commercial and competitive recreation permits and over 

800,000 individual use authorizations for special areas each year. The BLM also 

provides oversight and accountability for the recreation permit, fee, and commercial 

lease program. 

 Public Outreach, Stewardship and Partnerships – Promoting and supporting 

partnerships, volunteerism and stewardship to enhance recreational and educational 

experiences for visitors and public land users. The BLM is working with community 

leaders and networks of service providers to manage recreation opportunities that the 

public wants and that will bring economic benefits to local communities. The Bureau is 

also partnering with veterans and disabled sportsmen’s groups to ensure access to 

recreational opportunities.

 Visitor Information – Providing visitor information and services including maps, 

websites, interpretation and environmental education. Enhance the quality and 

consistency of baseline visitor and resource data by conducting inventories and 

implementing visitor use monitoring systems to improve understanding of the full range 

of social, economic and community resource values and enhance decision making 

capabilities.

 Cave Management – Overseeing cave and karst (an irregular limestone region with 

sinkholes, underground streams, and caverns) resource management policies and 

program.

 Customer/Visitor Service Satisfaction Surveys – Measuring success in providing 

quality visitor services through an annual survey. The BLM continues to maintain scores 

of above the 90 percent range in customer satisfaction in providing recreation program 

visitor services and facilities to its customers.

Critical Factors – The primary critical factors affecting the Recreation Program are:

 Urban Growth: As communities near public lands grow in the West, visitation and 

demands for new trails and visitor service facilities has increased each year. There are 

over 132 million acres of BLM-managed land in the western U.S. within 50 miles of an 

urban area with a population of 50,000 or greater.

 Public Demand: Visitation to public lands has increased from 51 million visitors in 2001 

to nearly 62 million in 2013.

 Public Access Conflict: Off-highway vehicle (OHV) use on public lands continues to 

increase. In response, the BLM is implementing a comprehensive and interdisciplinary 

approach in developing travel management plans and implementing actions to address 

the demand for public services, ensure public health and safety, protect natural and 

cultural resources, and reduce use conflicts. The BLM addresses travel and 

transportation planning as well as OHV management and restoration needs through 

Travel Management Plans and the Resource Management Planning process.

 Public Safety and Resource Protection: Increased urbanization adjacent to BLM 

public lands has led to increased recreation user conflicts. BLM’s law enforcement 

personnel spend a significant amount of time conducting visitor patrols and making 

public contacts regarding OHV use and other dispersed recreation activities.
2015 Budget Justifications Bureau of Land Management

Page VII - 90 Chapter VII – Management of Lands and Resources

Means and Strategies – The primary means and strategies utilized in the Recreation Program 

are:

 Visitor Data: Improving baseline visitor and resource data by conducting inventories 

and implementing visitor use monitoring systems.

 Travel and Public Access Management: Balancing OHV access and use with 

resource protection and public access needs by updating and implementing 

comprehensive travel management plans (TMP);

 Visitor Information and Education: Expanding visitor information delivery and quality 

by improving signing and websites, and developing travel maps.

 Visitor health, safety and accessibility: Ensuring and enhancing visitor health and 

safety and improving access for the disabled by conducting recreation facility condition 

assessments and fixing problems or hazards.

 Permits and Use Authorizations: Regulating uses by issuing and monitoring recreation 

use permits and allocating use for commercial, competitive, organized, and individual 

uses within specially designated areas.

 Accountability and transparency: Improving accountability and effectiveness by 

issuing recreation special permits, conducting fee program and fee site business 

practices assessments, and conducting audits and program evaluations.

 Visitor Use Monitoring: Protecting resources, improving services, and enhancing the 

quality of recreational experiences by monitoring visitor use and satisfaction, as well as 

monitoring vehicular use and their impacts on resources.

 Partnerships and Public Service: Reducing operational costs by emphasizing the use 

of volunteers and providing extensive public service opportunities. The recreation 

program has been particularly successful in engaging volunteers, accounting for almost 

half of the entire Bureau’s volunteer hours and nearly doubling the seasonal recreation 

workforce to serve visitors, maintain facilities and restore resources.

2015 Program Performance

In 2015, the Recreation Management Program will continue to support the AGO initiative and 

respond to traditional recreation demands from the public. 

 Recreation Planning: In 2015, workloads will focus on implementing a new Recreation 

Planning Handbook, slated for completion in 2014. Recreation planning requires not only 

coordination within the BLM, but also with other government and NGO partners. For this 

reason, the BLM continues to remain a major proponent of, and participant on, the 

Federal Interagency Council on Outdoor Recreation. The BLM will also continue to 

support partnerships with recreation groups, non-profit organizations, and businesses 

and local communities to enhance BLM’s ability to leverage resources, expand visitor 

service business opportunities and recreation services, and cooperatively manage 

resources at the National, State and field levels. The BLM will also continue to work 

regionally to implement policies, expand partnerships, and emphasize training that 

accelerates the BLM's transition to a business-oriented, ecosystem services-based, and 

collaboratively delivered management framework.

 Travel and Transportation Management: Recreational OHV use on public lands 

continues to increase, as does demand for access to travel across public lands for 

various uses and services. In response, the BLM uses a comprehensive and 

interdisciplinary approach in developing travel management plans (TMPs) and 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 91

implementing actions to address the demand for public services, ensure public health 

and safety, protect natural and cultural resources, and reduce use conflicts. 

 Recreation Permits, Fees, and Commercial Leases: In 2014, the BLM will release a 

new Handbook that will guide field offices in the management of recreation permits, fees, 

and commercial leases. The BLM will continue to encourage Field offices to maintain 

spending of fee dollars at the sites where they are collected, which allows the public to 

see immediate results from their participation. The BLM will also continue to conduct 

evaluations and audits of the recreation fee collection and permitting processes to 

ensure compliance with BLM policy and GAO/IG recommendations. The 2015 

President’s Budget includes a proposal to permanently authorize the Federal Lands 

Recreation Enhancement Act, which expires in December 2015. 

 Support Renewable Energy by Protecting Aesthetic Quality of the Landscape and 

Improving Energy Efficiency: The Visual Resources Management (VRM) program 

plays a significant role in the analysis of the visual and aesthetic impacts, mitigation and 

sighting requirements of renewable energy (solar and wind) development and other 

proposed landscape-altering use activities. The program will assist in the analysis of 

renewable energy projects, enhance project conservation design, and improve quality 

and energy efficiency of recreation sites through expanded VRM and Quality Built 

Environment guidance and program support. 

 Maintain Youth, Education and Stewardship Programs: The program will encourage 

partnerships in the implementation of the BLM’s 21st Century Conservation Service 

Corps, and continue to emphasize and promote stewardship and responsible use 

programs. In addition, the program will work with partners to improve delivery of real 

time information through the internet and provide stewardship ethics information to 

visitors of the public lands.
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Energy and Minerals 

Management 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 93

Activity: Energy and Minerals Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Oil & Gas Management $000 70,877 80,877 +526 +0 -28,220 53,183 -27,694

FTE 590 627 +0 -112 515 -112

Oil & Gas Permit 

Processing

$000 32,500 32,500 +0 +0 +0 32,500 +0

Offset -30,946 -32,500 +0 +0 +0 -32,500 +0

FTE 292 317 +0 -2 315 -2

Onshore Oil & Gas 

Inspection and 

Enforcement

$000 0 0 +0 +0 +48,000 48,000 +48,000

Offset 0 0 +0 +0 -48,000 -48,000 -48,000

FTE 0 0 +0 +196 196 +196

Coal Management $000 7,552 9,595 +85 +0 +0 9,680 +85

FTE 60 76 +0 +0 76 +0

Other Mineral Resources $000 8,834 10,586 +98 +0 +0 10,684 +98

FTE 74 88 +0 +0 88 +0

Renewable Energy $000 21,275 29,061 +171 +0 +0 29,232 +171

FTE 141 153 +0 +0 153 +0

Total, Energy & Minerals 

Management

$000 110,092 130,119 +880 +0 -28,220 102,779 -27,340

FTE 1,157 1,261 +0 +82 1,343 +82

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 2013, onshore Federal lands produced 

41 percent of the Nation’s coal, 40 percent of the Nation’s geothermal capacity, 13 percent of 

domestic natural gas, and five percent of domestically-produced oil. 

The goal of the Oil and Gas Management activity is to provide access to oil and gas where 

appropriate, and to manage exploration and development activities in an environmentally sound 

way. 

Coal is used to generate approximately 48 percent of the Nation’s electricity. The electric power 

sector (electric utilities and independent power producers) accounts for about 90 percent of all 

coal consumed in the U.S. and is the driving force for the Nation’s coal consumption. 

The BLM provides other minerals needed to support local infrastructure and economic 

development. Demand is increasing globally for non-energy solid minerals such as potassium, 

phosphate, sodium, and potash. Other important mineral resources produced from public lands 

include uranium, gold, silver, gypsum, sodium, building stone, sand, and gravel. The BLM

processes sales and issues permits for mineral materials such as sand, gravel, stone, and 

clays, which are essential to maintenance and construction of roads and buildings, including 

those used by the BLM to fulfill its land management objectives.

The Renewable Energy Management Program is responsible for processing right-of-way 

applications for wind and solar energy, overseeing geothermal energy leasing and development, 

and prioritizing transmission development associated with renewable energy production.
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Geothermal energy development has historically been managed as part of the Oil and Gas 

Management Program. Funding for geothermal leasing and development was transferred from 

the Oil and Gas Management Program to the Renewable Energy Program in 2013 as 

management oversight of renewable energy development was consolidated into a single 

program. The BLM has the delegated authority for leasing 249 million acres of Federal land 

(including just over 100 million acres of National Forest land) with geothermal potential.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 95

Activity: Energy and Minerals Management

Subactivity: Oil and Gas Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Oil & Gas Management $000 70,877 80,877 +526 +0 -28,220 53,183 -27,694

FTE 590 627 +0 -112 515 -112

Oil & Gas Permit 

Processing

$000 32,500 32,500 +0 +0 +0 32,500 +0

Offset -30,946 -32,500 +0 +0 +0 -32,500 +0

FTE 292 317 +0 -2 315 -2

Onshore Oil & Gas 

Inspection and 

Enforcement

$000 0 0 +0 +0 +48,000 48,000 +48,000

Offset 0 0 +0 +0 -48,000 -48,000 -48,000

FTE 0 0 +0 +196 196 +196

Summary of 2015 Program Changes for Oil & Gas Management: ($000) FTE

Leasing, Oversight and Environmental Studies +4,580 +43 

Rulemaking and Reforms +5,200 +7 

Decrease Base Funding for inspections/shift cost to fees -38,000 -162 

Total -28,220 -112 

Other Resources Supporting Oil & Gas Management:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Energy Act Permit Processing Fund $000 16,236 17,264 18,349 +1,085

FTE 194 194 194 +0

Energy and Minerals Cost Recovery $000 4,439 5,000 5,221 +221

FTE 29 30 30 +0

Abandoned Wells Remediation Fund $000 0 10,000 36,000 +26,000

Notes:

- Energy Act Permit Processing Fund amounts are shown as new budget authority derived from 50 percent of rents from onshore mineral 

leases for oil and gas, coal, and oil shale on Federal lands; Section 365 of the Energy Policy Act of 2005 (Public Law 109-58) appropriates 

these funds on a permanent basis

- Amount in 2013 and 2014 for Energy Act Permit Processing Fund shown net of sequestration

- More information on Energy Act Permit Processing Fund is found in the Permanent Operating Funds chapter

- Actual and estimated obligations, by year for Energy Act Permit Processing Fund are found in President's Budget Appendix under the BLM 

section for Permanent Operating Funds account at: http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

- Energy and Minerals Cost Recovery amounts are shown as new budget authority derived from fees that include costs of actions such as 

environmental studies performed by the BLM, lease applications, and other processing related costs; Independent Offices Appropriations Act 

(IOAA), as amended (31 USC 9701), Section 304(a) of the Federal Land Policy and Management Act of 1976, as amended (43 USC 1734) 

appropriates these funds on a current basis

- Amount in 2013 for Energy and Minerals Cost Recovery shown net of sequestration

- More information on Energy and Minerals Cost Recovery is found in the Service Charges, Deposits, & Forfeitures chapter

- Actual and estimated obligations, by year for Energy and Minerals Cost Recovery are found in President's Budget Appendix under the BLM 

section for Service Charges, Deposits, & Forfeitures account at: http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

- Abandoned Wells Remediation Fund amounts are shown as new budget authority derived from General Fund; Section 349 of the Energy 

Policy Act of 2005 (Public Law 109-58), as amended by Public Law 113-40, the Helium Stewardship Act of 2013 (42 USC 15907) appropriates 

these funds on a permanent basis

- More information on Abandoned Wells Remediation Fund is found in the Abandoned Wells Remediation Fund chapter

- Actual and estimated obligations, by year for Abandoned Wells Remediation Fund are found in President's Budget Appendix under the BLM 

section for Abandoned Wells Remediation Fund account at: http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf
2015 Budget Justifications Bureau of Land Management

Page VII - 96 Chapter VII – Management of Lands and Resources

Justification of 2015 Program Changes

The net 2015 budget request for the Oil and Gas Management Program is $53,183,000 and 515 

FTE, a net program change of -$28,220,000 and -112 FTE from the 2014 enacted level. Total 

discretionary program resources requested for the Oil and Gas program, including fee-based 

funding, is $133,683,000, a program increase of $19,780,000 over the 2014 enacted level.

Leasing, Oversight and Environmental Studies (+$4,580,000/+43 FTE) – The BLM requests 

an increase of $4.6 million to allow the Bureau to strengthen the leasing program through 

implementation of leasing reforms and to effectively oversee energy permitting and 

development activities. This is particularly important given the larger onshore well inventories 

with more sophisticated operations that include complicated completions for the newer 

horizontal drilling and hydraulic fracturing operations. In addition, $1.0 million of this request will 

address large, regional-scale analysis and studies, including environmental impact statements 

for oil and gas development issues. These regional-scale studies will assist the BLM in 

development of Master Leasing Plans for oil and gas development issues. This increase will 

also allow the Bureau to fill vacant positions and expand staff in key locations with heavy 

workload. 

Rulemaking and Reforms (+$5,200,000/+7 FTE) – The BLM requests an increase of $5.2 

million to provide key staffing, training, and other resources needed to continue work on 

regulations and policies to strengthen operation guidance for 23,000 scattered producing 

leases. In 2011, the Government Accountability Office (GAO) designated Federal management 

of oil and gas resources as high risk because the Department of the Interior: (1) did not have 

reasonable assurance that it was collecting its share of revenue from oil and gas produced on 

Federal lands; (2) continued to experience problems in hiring, training, and retaining sufficient 

staff to provide oversight and management of oil and gas operations on lands and waters; and 

(3) was engaged in a broad reorganization of both its offshore oil and gas management and 

revenue collection functions. GAO has separately reviewed and found significant shortcomings 

in DOI’s oversight of gas flaring and venting from Federal leases.

The BLM has initiated rulemaking and policy guidance efforts in response to GAO’s findings, as 

well as audits and recommendations of the Royalty Policy Committee, with the goal of achieving 

better environmental outcomes and greater confidence in production accounting and reporting 

by onshore Federal and Indian mineral operators.

The BLM intends to complete a rulemaking that updates and codifies Onshore Orders 3, 4 and 

5, which were originally developed in the 1980s to reflect modern industry practices. Order 3 

addresses site security of facility production vessels, and Orders 4 and 5 address oil and gas 

measurement practices and metering. In 2014, the BLM will initiate a rulemaking process to 

strengthen oversight of venting and flaring to achieve methane emission reductions and improve 

royalty recovery for natural gas streams. In addition to updating these Orders, the BLM is 

strengthening and updating operational guidance and regulations for drilling, hydraulic fracturing 

and other well completion activities. BLM also plans to propose a new approach to royalty rates 

for new competitive leases on Federal lands. This increase in funding will improve BLM’s 

capacity to assess regulatory options carefully, complete rulemaking processes, issue clear 

internal guidance to BLM field offices, and conduct appropriate training relating to these new 

rules and policies.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 97

The BLM will also hire additional personnel to develop an Oil and Gas Measurement Team 

made up of senior technical experts to provide leadership for onshore operations to execute the 

new rules and to develop new guidance and training. The BLM will also incorporate the new 

guidance into the Automated Fluid Mineral Support System (AFMSS) database, which the BLM 

is upgrading in 2014 and 2015, and provide training on the new database. The added program 

capacity will also include additional technical subject matter specialists in the field to allow 

senior staff to shift their efforts to the regulatory, guidance, training development, and oversight 

work.

Decrease Base Funding for Inspections/Shift Cost to Fees (-$38,000,000/-162 FTE) – The 2015 

budget proposes shifting a significant share of the cost of oil and gas inspections to industry 

fees, for $38,000,000 in requested savings. 

Legislative Changes

Federal Oil and Gas Reforms - The 2015 budget includes a package of legislative reforms to 

bolster and backstop administrative actions being taken to reform management of Interior's 

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

taxpayers from the sale of these Federal resources and on improving transparency and 

oversight. Proposed statutory and administrative changes fall into three general categories: (1) 

advancing royalty reforms; (2) encouraging diligent development of oil and gas leases; and (3) 

improving revenue collection processes.

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

adjusting the onshore royalty rate, analyzing a price-based tiered royalty rate, and repealing 

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

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

production through a new per-acre fee on nonproducing leases. Revenue collection 

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

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

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

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

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

as a result of these reforms.

The oil and gas reform package also includes a proposal to amend Section 365 of the Energy 

Policy Act of 2005 to:

1. Extend the Act’s permit processing pilot office authority beyond 2015 and

2. Remove the current limitation of the authority to only those pilot offices explicitly 

identified in the Energy Policy Act.

This change will provide the BLM with greater flexibility in locating these offices where they can 

be most effective as industry permitting demands change over time. The pilot office authority 

allows BLM to fund personnel from other agencies that are assigned to these pilot offices. This 

authority has improved BLM’s efficiency in processing Applications for Permits to Drill and other 

use authorizations. The 2015 legislative proposal does not extend the Permit Processing 

Improvement Fund that was also established by Section 365. This permanent funding source is 

scheduled to expire at the end of FY 2015.
2015 Budget Justifications Bureau of Land Management

Page VII - 98 Chapter VII – Management of Lands and Resources

Inspection Fees - The 2015 budget proposes to shift a significant share of the cost of the 

inspections activity to industry fees, for a savings of $38.0 million in requested appropriations. 

The estimated collections generated from the proposed inspection fees will total $48.0 million, 

fully offsetting the proposed reduction in appropriated funding and providing for a net increase of 

$10.0 million in funds available for this critical BLM management responsibility. The increased 

funding is aimed at correcting deficiencies identified by the Government Accountability Office in 

its February 2011 report, which designated Federal management of oil and gas resources, 

including production and revenue collection, as high risk. The $10.0 million increase will help the 

BLM achieve the high-priority goal of increasing the completion of inspections of Federal and 

tribal high-risk oil and gas cases by nine percent over 2011 levels. The BLM will also complete 

more environmental inspections to ensure environmental requirements are being followed in all 

phases of development. The fee is similar to those already in place for offshore operations. 

Proposed appropriations language to implement the fee is included in the proposed General 

Provisions for the Department of the Interior.

Repeal Geothermal Payments to Counties - The Administration proposes to repeal Section 

224(b) of the Energy Policy Act of 2005. Prior to passage of this legislation, geothermal 

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

States, and 50 percent to the Treasury. The Energy Policy Act of 2005 changed this distribution 

beginning in 2006 to direct 50 percent to States, 25 percent to counties, and for a period of five 

years, 25 percent to a new BLM Geothermal Steam Act Implementation Fund. The allocations 

to the new BLM geothermal fund were discontinued a year early through a provision in the 2010 

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

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

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

savings of $4.0 million in 2015 and $42 million over ten years.

Program Overview

The Oil and Gas Management Program is responsible for providing access to onshore energy 

resources in an environmentally responsible manner. This program manages approximately 

47,000 onshore leases in 34 States that generate nearly $3 billion in revenues each year. The 

primary program components are:

Leasing – Conducting oil and gas lease sales, primarily across the West and in Alaska, 

consistent with land use plans and requirements for public participation, and administering 

existing oil and gas leases and processing post-lease actions such as assignments, operating 

rights, mergers, bonds, unit agreements, and terminations. 

Permitting – Processing oil and gas Applications for Permit to Drill (APDs) and subsequent 

modifications, for both subsurface and engineering criteria as well as the footprint at the surface. 

The BLM maintains an inventory of at least 6,700 valid approved APDs ready for industry to 

drill.

Compliance (Inspections) – Inspecting existing oil and gas authorizations, roughly 33,000 

annually; determining adequate financial bonding, and evaluating well inventories in the field to 

address inactive wells; inspecting producing oil and gas wells and ensuring proper reporting of 

production; and taking enforcement actions to ensure compliance with terms and conditions of 

leases, APDs, and other authorizations. This includes compliance with environmental 

conditions.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 99

Operations Oversight – Approving reservoir management agreements to provide for the 

orderly development of oil and gas fields, evaluating oil and gas fields for drainage (fluid 

minerals on Federal land removed through a well on adjacent private land), and taking 

administrative actions, if necessary, to protect Federal mineral interests, and protecting the 

environment by plugging and reclaiming orphan oil and gas wells drilled by previously existing 

oil and gas companies and the Alaska Legacy Wells originally drilled by the Federal 

Government (United States Navy and U.S. Geological Survey). 

Fiduciary Tribal Responsibilities – Carrying out trust responsibilities by managing operational 

activities on approximately 3,700 oil and gas leases for Indian Tribes and individual Indian 

allottees, and providing technical advice on leasing and operational matters to the Bureau of 

Indian Affairs, Indian Tribes, and individual Indian mineral owners.

High Risk Program Designation and Other Program Recommendations – In a February 

2011 report, the Government Accountability Office (GAO) designated Federal management of 

oil and gas resources, including production verification and revenue collection as high risk 

because the Department of the Interior: (1) did not have reasonable assurance that it was 

collecting its share of revenue from oil and gas produced on Federal lands; (2) continued to 

experience problems in hiring, training, and retaining sufficient staff to provide oversight and 

management of oil and gas operations on lands and waters; and (3) was engaged in a broad 

reorganization of both its offshore oil and gas management and revenue collection functions. 

The BLM continues to improve program effectiveness in these areas and has taken steps to 

address the problems identified by the GAO and other audit recommendations. Some of the

focus areas include modernization and rulemaking efforts:

 Rulemaking effort in response to audits that would improve and update existing 

operation guidance for Federal and Indian minerals including Onshore Orders 3, 4 and 

5 for Site Security, Oil Measurement, and Gas Measurement, respectively. Proposed 

Onshore Order 9 for Emission Reduction and Royalty Recovery would replace Notice to 

Lessees 4a;

 Improving and refreshing modules within the 1997 operational database to provide for 

stronger record management capacity of 93,500 active wells and the 33,000 annual 

inspections BLM conducts;

 Transitioning to a risk-based inspection strategy and continuing to develop automation 

support modules to implement the risk-based strategy. This strategy will help ensure the 

highest risk cases are inspected each year based on weighting factors to determine 

priorities;

 Following an internal control review of the inspection and enforcement program, the BLM 

is implementing recommendations to correct and improve the inspection and 

enforcement program and is providing oversight guidance to coordinate across office 

boundaries. The objective is to provide accurate and complete data in the records, plus 

provide oversight that the data is sufficient to ensure orderly development and 

accounting of the Nation’s finite energy mineral resources;

 The BLM is preparing a proposed rulemaking for royalty rate adjustments for new 

competitive leases in order to achieve a better return to taxpayers;

 Inspection emphasis is placed on achieving 100 percent coverage of high-risk 

production cases, and at times will share inspectors or form strike teams to help 

impacted offices in high production areas (Bakken and Permian Basin);
2015 Budget Justifications Bureau of Land Management

Page VII - 100 Chapter VII – Management of Lands and Resources

 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; and

 Training courses are being evaluated, updated, developed and conducted to assist in 

the evaluation of applications, inspection of operations, and production accountability 

reviews. Training is focused on the inspectors’ certification; developing certification for 

surface compliance; oil and gas training for managers; and technical training for the 

engineers. 

BLM Onshore Leasing Reforms – Onshore fossil fuels will continue to make an important 

contribution in fulfilling our Nation's energy needs, but development of these resources needs to 

be conducted responsibly. In May 2010, the BLM finalized several reforms to its oil and gas 

program to improve environmental protection of important natural resources on public lands 

while aiding in orderly leasing with measured and balanced development of these resources. 

The reforms establish a more rigorous, open, consistent, and environmentally sound process for 

leasing and developing oil and gas resources on public lands. These reforms and parcel 

screenings (including a boots-on-the-ground view of resource concerns for each parcel) have 

helped to reduce potential conflicts that can lead to costly and time-consuming protests and 

litigation of leases.

Under the reformed leasing policy, the BLM will expand upon efforts to: 

 Engage the public and stakeholders in the development of Master Leasing Plans prior to 

leasing in certain areas with important environmental resource values and where new oil 

and gas development is anticipated. The intent is to fully consider other important 

environmental resource values before making a decision on leasing and development in 

an area; and

 Ensure potential lease sales are fully coordinated, both internally and externally, 

including public participation, and interdisciplinary review of available information, as well 

as on-site visits to parcels prior to leasing when necessary to supplement or validate 

existing data.

Inspection and Enforcement – The BLM performs several different types of oil and gas 

inspections in an effort to ensure that the American people receive the benefit of the natural and 

mineral resources on their lands and to ensure that those resources are managed in an 

environmentally responsible manner.

Production Inspections – The BLM conducts inspections on production facilities to ensure that 

equipment, practices and procedures are in accordance with the regulations, Orders and any 

applicable approval documents. Historically, the BLM has conducted two categories of 

production inspections:

 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 perform inspections annually on 

approximately one-third of all other producing (lower than high production) leases and 

agreements on a rotating basis, so that all leases are inspected every three years and 

accounting credibility for these operations is maintained.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 101

In the past, the BLM prioritized leases to ensure that the leases were inspected based on 

production levels (i.e., FOGRMA high-production leases were inspected first). The BLM initiated 

a risk-based strategy for prioritizing production inspections in 2011 to improve upon this system. 

The BLM plans to expand this risk-based strategy to the other types of inspections as soon as 

identified risk factors can be tracked in the Automated Fluid Minerals Support System, the 

inspection and enforcement database. The risk-based strategy will help the BLM maximize the 

use of a limited inspection staff to 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. 

The BLM conducted 2,083 high-priority production inspections in 2013. The Oil and Gas 

Management program continues to face challenges with retaining certified inspectors in remote 

field offices. The 2014 Omnibus Appropriations Act included pay differential authority for 

petroleum engineers and petroleum engineering technicians, and BLM is assessing options for 

utilizing this authority to help address BLM’s recruitment and retention challenges. The BLM will 

continue to search for other ways to recruit and retain these inspectors. The BLM also will 

continue to use qualified natural resource specialists to conduct environmental inspections and 

improve reclamation practices that minimize disruptions and impacts to habitat and to enable 

the certified petroleum engineering technicians to concentrate on production verification 

inspections.

Drilling Inspections – The BLM conducts inspections on wells as they are being drilled. The 

operations inspected ensure that equipment, practices, and procedures are in accordance with 

the regulations, orders, notices, lease stipulations and approvals. 

Abandonment Inspections – The BLM conducts abandonment inspections during the plugging 

of oil and gas wells to ensure wellbore integrity and zonal isolation of underground formations. 

These could be depleted producing wells or newly drilled dry holes.

Workover Inspections – The BLM inspects workover operations on existing producing, depleted 

producer and service wells. The operations are inspected to ensure that equipment, practices, 

and procedures are in accordance with the approval.

Environmental Inspections – Natural Resource Specialists, Environmental Scientists, or other 

resource program specialists (wildlife biologists, archaeologists, etc.) typically perform BLM 

environmental inspections. Environmental inspections include inspection of reclamation efforts, 

erosion control measures, topsoil stockpiling, well location, access road, pit construction and 

use, spills, water disposal methods, containment systems for production tanks and surface 

hazards. Environmental inspections also include inspections to ensure abandoned locations 

are properly reclaimed and post approval inspections that look specifically at surface 

environmental impacts. They do not include onsite inspections conducted prior to the APD being 

approved.

Records Verification Inspections – The BLM uses records verification inspections to review

production records and compare them to production reports sent to the Office of Natural 

Resources Revenue. These inspections may not require additional review with onsite visits.

Undesirable Event Inspections – The BLM conducts undesirable event inspections when spills 

or accidents occur on an oil and gas lease. 
2015 Budget Justifications Bureau of Land Management

Page VII - 102 Chapter VII – Management of Lands and Resources

Alleged Theft Inspections – When an alleged theft of production is reported to a BLM Field 

Office by an operator or the public, the BLM conducts an alleged theft inspection.

Idle Well Inspections – The BLM conducts idle well inspections of wells that have had zero 

production reported for the previous 7 years. These inspections may result in orders to the 

operator to perform specific actions. 

The table below shows a breakout of inspections completed in 2010-2013 and those estimated 

for 2014 and 2015.

Fiscal Year 2010 2011 2012 2013 2014 Est11 2015 Est

Production Inspections

1. FOGRMA High Priority12 649 N/A N/A N/A N/A N/A

2. High-Risk Cases13 N/A 2,606 2,148 2,083 2,200 2,500

3. Other Production 6,486 4,938 5,126 3,330 2,700 3,200

Total Production 

Inspections 7,135 7,544 7,274 5,413 4,900 5,700

Other Inspections

1. Drilling Inspections 1,884 1,963 1,951 1,396 1,300 1,600

2. Abandonment Inspections 1,168 1,100 1,268 1,325 1,300 1,400

3. Workover Inspections 400 345 417 337 300 400

4. Environmental Inspections 17,978 19,371 20,171 19,691 20,000 21,000

5. Record Verification 

Inspections 2,613 2,430 3,023 3,451 3,500 3,800

6. Undesirable Event 

Inspections3 393 476 467 385 400 400

7. Alleged Theft Inspections14 2 4 0 0 0 0

8. Idle Well Inspections N/A N/A N/A 1,257 1,400 1,500

Total Other Inspections 24,438 25,689 27,297 27,842 28,200 30,100

Total Inspections15 31,573 33,233 34,571 33,255 33,100 35,800

Inspections Completed and Estimated

Critical Factors – The primary critical factors affecting the program are:

 The BLM must review and analyze environmental documents that include increasingly 

complex environmental issues and sophisticated field operations; impacts, and 

 

11 FY2014 saw a Federal shutdown loss of available time impacting nearly 3 weeks of operation (over 1500 inspections lost). FY 

2015 reflects the proposed added inspection capacity.

12 BLM required inspections in 2010 are those inspections required by either regulation or policy. FOGRMA provides guidance for 

inspections.

13 In 2011, the BLM instituted a risk-based strategy for production inspections. This category consists of wells and leases that meet 

BLM’s high-risk criteria. Based on this strategy, each year’s list of required high-risk cases is determined based on the previous 

year’s history. For this reason, the actual quantity of required high-risk inspections cannot be determined until the previous year is 

complete. The FY 2014 and FY 2015 estimated numbers are based on assuming the BLM completes 95% of required high-risk 

inspections

14 These inspections are conducted on an as-needed basis.

15 This table combines inspections on cases and inspections on individual wells.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 103

mitigation plans for land use plans, lease sales, APDs, and subsequent production 

operations.

 Freedom of Information Act requests, protests, appeals, and litigation limit the staff 

availability to complete the comprehensive adjudication of leases and permits.

 As production activity increases, the BLM must increase the number of oil and gas 

inspections and increase efforts to ensure appropriate accountability of production 

volumes across the over 23,500 producing leases.

 Expanded well inventory and operations require vigilance to provide compliance 

credibility and ensure public safety as well as protection of other natural resources.

 Proper documentation of well operations from 93,500 active wells in the AFMSS 

database and official paper files remains a challenge especially as most of the tracking 

program was built in 1997. 

 The BLM faces challenges with technical employee recruitment, training, and retention, 

as current staff retires and the program competes with higher salaries often offered by 

private industry and other agencies. BLM is assessing a range of options for addressing 

these recruitment and retention challenges, including the potential use of pay differential 

authority for petroleum engineers and petroleum engineering technicians provided in the 

2014 Omnibus Appropriations Act.

 Program funding and senior staff losses in recent years dampened program progress 

and impeded BLM’s ability to maintain critical coverage with key staff, travel and training. 

In FY 2014, the Federal Government shutdown affected nearly 3 weeks of operation.

Performance Measures – The BLM has consistently tracked the number of inspections 

completed to ensure that oil and gas production on public land is carried out in an 

environmentally responsible manner while generating a fair return of revenue for the American 

people. 

The BLM is using a Strategic Plan measure that tracks the percent of leases where production 

verification has occurred. The new measure will compare the total number of cases against the 

number of production and records verification inspections completed on those cases annually. 

Prior to the establishment of this measure, the BLM tracked the number of inspections 

completed on both wells and cases using the total number of required inspections as a baseline.

The older measure was ineffective in two ways. First, a single case may have multiple wells 

and therefore the denominator may have been under-inclusive in that it combined what should 

have been multiple units into a single unit and, conversely, the measure may have also been 

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 performance 

was reported since required inspections is a subset of total inspections.

Processing of Applications for Permit to Drill – Between 1996 and 2006, the number of new 

APDs received rose dramatically with the development of coal bed natural gas (CBNG), 

especially in the Powder River and San Juan Basins. The BLM expanded its capability to 

process APDs to handle the increasing demand and growing well inventory of these shallow 

ubiquitous wells. The number of APDs received dropped in 2007 and 2008 as the CBNG wells 

plateaued, but still remained relatively high compared to other years. The APD numbers 

continue to drop (except for a brief increase again in 2012 due to stronger industry demand), but 

the permit activity remains strong in critical high profile offices for the Bakken, Permian Basin 
2015 Budget Justifications Bureau of Land Management

Page VII - 104 Chapter VII – Management of Lands and Resources

and the Uintah Basin. Two of these areas are offices that have a significant tribal mineral 

responsibility. 

The complexity of processing these APDs has grown, with more down-hole and surface 

resources analysis, as have the unit cost for processing them and the need to address protests 

and appeals from interest groups. The BLM projects that it will receive 5,000 APDs in 2014 and 

2015. BLM approval times have increased or remained high due to the increased complexity of 

resource issues analyzed in environmental documents, in addition to industry turnover of their 

permitting specialists. BLM has worked with the operators to improve to quality and 

completeness of submitted packages. This permitting emphasis complemented with data 

cleanup efforts appear to be decreasing inconsistent and incomplete permit packages in certain 

states and lowering the time the APDs are with operators overall. 

As shown the table below, the number of approved APDs available for industry drilling will 

remain strong at 6,500.

Fiscal Year 2010 2011 2012 2013 2014 Est 2015 Est

Total APDs pending at start 

of year 5,370 4,580 4,108 3,683 3,546 3,746

New APDs received 4,447 4,728 5,240 4,757 5,000 5,000

APDs approved 4,593 4,725 5,009 4,472 4,478 4,536

Total APDs processed 5,237 5,200 5,861 4,892 4,800 4,800

APDs pending at year end 4,580 4,108 3,683 3,546 3,746 3,946

APDs approved, waiting to 

be drilled16 N/A 7,226 6,960 6,711 6,500 6,500

APDs: Pending, Received, Approved, Processed and Available to Drill17

The chart below illustrates the relationship between the prices for oil and gas and leasing and 

permitting activity from 2004-2012. Leasing and permitting demand is significantly influenced by 

energy prices.

 

16 new in 2011

17 APDs pending at the end of the year are a snapshot at that point in time and do not account for permits that remain in process at 

the end of the fiscal year
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 105

New Leases Issued and Drilling Permits Approved in Relation to Commodity Pricing

2015 Program Performance

The percentage of leases with approved APDs is expected to increase slightly due to an overall 

decrease in the number of active leases. The percentage of APDs processed is expected to be 

55 percent, a slight increase from previous levels. The percentage of producing fluid mineral 

cases that have a completed inspection is expected to decrease in 2015 as the BLM continues 

focus on select high-risk production cases.

$0

$20

$40

$60

$80

$100

$120

0

1

2

3

4

5

6

7

8

9

2004 2005 2006 2007 2008 2009 2010 2011 2012 2013

Thousands

Leases Issued Each Year

APDs Approved

Natural Gas ($s Per MCF) Xs 10

Oil - ($s Per Barrel)
2015 Budget Justifications Bureau of Land Management

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Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 107

Activity: Energy and Minerals Management

Subactivity: Coal Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Coal Management $000 7,552 9,595 +85 +0 +0 9,680 +85

FTE 60 76 +0 +0 76 +0

Justification of 2015 Program Changes

The 2015 budget request for Coal Management Program is $9,680,000 and 76 FTE.

Program Overview

Program Components -- The BLM is responsible for leasing the Federal coal mineral estate on 

approximately 570 million acres. Over the last decade (2003-2012), 48 percent of the Nation’s 

electricity was generated from the use of coal. Approximately 41 percent of that coal was 

produced on Federal lands managed by the BLM. 

The BLM’s coal program consists of approximately 309 Federal coal leases and 474,025 acres 

under lease. During the last decade, Federal coal leases produced 4.56 billion tons with a total 

value of $55.4 billion that generated $6 billion in royalties. During the same period, Federal coal 

lease sales resulted in 46 leases sold totaling 71,165 acres and 5.3 billion tons of mineable coal 

leased. Approximately $4.5 billion in bonus bids were accepted for these 46 lease sales.

The BLM’s Coal program is responsible for:

 Conducting competitive coal lease sales and coal lease modification sales, 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 licenses, 

leases, and other BLM coal authorizations; and

 Providing prelease evaluations of mineral tracts when requested by the Bureau of Indian 

Affairs for Indian Tribes and Indian mineral owners.

Critical Factors – In an effort to increase efficiency and to standardize reporting of mine 

inspections and production verification, the BLM is working toward the development of a Mineral 

Tracking System (MTS). The MTS will respond to needs identified in the 2003 and 2013 

Department of the Interior (DOI) Office of the Inspector General (OIG) audits and will implement 
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DOI policy direction. The pilot version of this system was launched in Utah and Wyoming, and 

the BLM will continue this pilot through 2015.

The BLM faces a loss of institutional knowledge needed to manage the Coal Program as many 

of its engineers, geologists, and land law adjudicators retire or become eligible for retirement. 

The best way to prepare new employees to accomplish coal workloads successfully 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 surface owners to participate in land use planning processes and encourages 

lease applicants to acquire surface owner consent prior to submitting the lease application to 

the BLM. The BLM continues to work with the U.S. Forest Service, the Office of Surface Mining 

Reclamation and Enforcement, and other Federal and State agencies to streamline multiple 

agency processes to minimize the time necessary to process applications to explore for and 

produce Federal coal resources. Federal surface management agencies are required to 

provide the BLM their decision whether to lease Federal coal or not.

The BLM and the Mine Safety and Health Administration are collaborating to provide a safer 

workplace for developing Federal and Indian coal.

The BLM is adopting the recommendations for production accountability improvements 

developed in the Report to the Royalty Policy Committee, Mineral Revenue Collection from 

Federal and Indian Lands and the Outer Continental Shelf. This includes the development of 

new guidance regarding inspection and enforcement and production verification, inspector 

certification, 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 the BLM.

The Bureau’s Coal program was recently reviewed by the DOI OIG and the U.S. Government 

Accountability Office. In 2014 and 2015, the BLM will work to enhance the appraisal process 

and determination of fair market value when conducting lease sales as well as implementing 

other recommendations contained in their reports. 

Other Funding Sources

The Coal program is primarily funded through this subactivity. Another funding source is service 

charges collected from coal lease, lease modification, royalty rate reduction, and logical mining 

unit application processing. The BLM has been implementing cost recovery for these 

applications filed with the BLM since a cost recovery rule was implemented November 7, 2005. 

As older applications that predate cost recovery are completed and the workload focuses more 

on newer applications that are subject to cost recovery, the receipts from cost recovery are 

increasing. The BLM will continue to evaluate opportunities to implement additional cost 

recovery within the program and thereby reduce the program cost to taxpayers. 

Other Resources Supporting Coal Management:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Coal Management Cost Recovery $000 381 408 TBD TBD
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 109

2015 Program Performance

The BLM anticipates completing processing for approximately ten percent of the pending coal 

lease applications during 2015. 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 lease application environmental analysis better 

evaluates cumulative effects and can be processed faster than sequentially processing the 

NEPA analysis for each application individually. Grouping results in multiple lease sales 

happening over a relatively short period of time. However, as grouping continues, there is a 

tendency to see groups mature to sale together with a longer period of what might appear to be 

inactivity until the next group matures to sale. Resources are used during these periods to 

complete environmental, geological and engineering analyses, appraisals, hold lease sales, and 

process coal leases. Processing was completed for five percent of coal lease applications in 

2009 and 2010, seven percent in 2011, 18 percent in 2012, and 14 percent in 2013. In 2013, 

BLM held two successful lease sales, issued two leases, rejected two lease applications, and 

two lease applications were withdrawn. There are several grouped environmental analyses in 

progress that will yield multiple lease application process completions in 2014 and 2015.

The BLM completes approximately 2,600 coal inspection, enforcement, and production 

verification actions each year. Inspections are performed to ensure compliance with the lease 

terms and conditions and mining plan approvals. Enforcement actions are necessary where the 

lessee fails to conform to the established lease requirements. During the inspection process, 

the BLM inspector will collect production data to determine independently if the coal production 

being reported by the lessee is reasonable. The BLM must also complete approximately 335 

post lease administrative actions annually while managing leases. These post lease actions 

vary from lease readjustments and lease modifications, to resource recovery and protection 

plan approvals. Normally, post lease actions are market dependent. 

The OIG Final Evaluation Report (June 11, 2013) included 13 recommendations to enhance the 

BLM’s coal program. The evaluation focused on the BLM coal lease sale process and the coal 

lease inspection and enforcement program. BLM developed a response plan that includes an 

aggressive completion date of 2015. The BLM is working on these lease sale processing and 

coal lease inspection and enforcement recommendations in 2014 and 2015. The GAO Federal 

Coal Leasing Report (February 4, 2014) included similar lease sale processing 

recommendations as provided in the OIG report. BLM plans to address similar issues at the 

same time for both audits. 
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Activity: Energy and Minerals Management

Subactivity: Other Mineral Resources

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Other Mineral Resources $000 8,834 10,586 +98 +0 +0 10,684 +98

FTE 74 88 +0 +0 88 +0

Justification of 2015 Program Changes

The 2015 budget request for Other Mineral Resources Program is $10,684,000 and 88 FTE.

Program Overview

Program Components – The Other Mineral Resources Subactivity is composed of two 

programs:

 The Non-Energy Solid Leasable Minerals Program includes potash, phosphate, sodium, 

and gilsonite. It also includes metallic minerals on acquired lands (lead, zinc, copper, 

etc.). These minerals are used for fertilizers, glass and papermaking, flue-gas 

desulfurization, lead-acid batteries, oil well drilling, water treatment, detergents, and 

many chemicals.

 Mineral Materials Program includes clay, sand, gravel, building stone, and many others. 

These materials are then used for construction of roads, foundations, and buildings.

The Non-Energy Solid Leasable Minerals Program is responsible for:

 Processing permit, license and lease applications;

 Administering existing permits, licenses and leases;

 Approving exploration and mining plans;

 Conducting National Environmental Policy Act (NEPA) analyses;

 Inspecting and monitoring existing authorizations;

 Inspecting producing operations to ensure proper reporting of production;

 Taking enforcement actions to ensure compliance with terms and conditions of permits, 

licenses and leases; and 

 Administering trust responsibilities by managing post-leasing and production activities for 

Indian Tribes and individual Indian mineral owners.

The Mineral Materials program is responsible for:

 Performing NEPA analyses of disposal applications;

 Performing appraisals to determine the value of disposals;

 Conducting sales;

 Administering existing contracts and collecting revenue;

 Processing free use permits for State and local governments and non-profit 

organizations;

 Processing exploration permits and mining authorizations;
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 Inspecting existing mineral materials authorizations;

 Inspecting sites to ensure proper reporting of and payment for production;

 Taking enforcement actions to ensure compliance with terms and conditions of contracts 

and authorizations; and

 Investigating and taking enforcement actions on unauthorized removal of mineral 

materials from Federal mineral estate.

Critical Factors – Several factors affect the Other Mineral Resources Program. Most demand 

for mineral materials comes from sales directly to the public and industry for construction and 

development of businesses and housing in urban and rural areas, and for the infrastructure for 

renewable and conventional energy and mineral projects. The level of this public demand tends 

to mirror the state of the economy. State and local governments and nonprofit organizations are 

provided free use of sand, gravel, and other mineral materials used in the development and 

maintenance of infrastructure for communities and the BLM continues to process these 

applications at no cost to those entities. However, this results in increased workload for the 

BLM. 

The BLM has been experiencing an increase in mineral materials trespasses, particularly on 

spilt-estates, due to many factors, such as an increase in urban development and zoning 

restrictions reducing private sources of mineral materials, and the increase in shale gas 

development in new areas. Thus, it has become more important for the BLM to conduct 

inspections for unauthorized and 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 issues in environmental documents prior to NonEnergy Solid Leasable Minerals permit, license or lease issuances, and Mineral Materials sales

and permits.

The cost of mineral materials disposals, inspections, and lease applications processed per year 

varies due to the size and complexity of the disposals, trespasses, and lease applications. The 

cost per 1,000 cubic yards of disposal applications processed per year has risen due to the 

increasing level of complexity in environmental impacts and mitigation, and the reduced quantity 

per disposal application. Disposal sizes range from a single truckload for immediate production 

to contracts up to 10 years for millions of cubic yards.

The cost of processing non-energy permit, license and lease applications and associated postauthorization work similarly varies due to the size and complexity of the application and 

operation. The cost of processing new non-energy applications and post-lease modifications 

has also risen due to the increasing level of complexity of environmental impacts and mitigation 

requirements. There are far fewer non-energy operations, but the average non-energy lease 

operation is typically much larger than the average mineral materials operation, and non-energy 

leases typically span multiple decades.

Other Funding Sources – The Other Mineral Resources Program is primarily funded through 

appropriations in this subactivity. Other funding sources include cost recovery fees, averaging 

$230,000 per year, for processing mineral disposal actions such as mineral material competitive 

sales and cost recovery fees for processing new applications for non-energy leases, licenses 

and permits. The BLM will continue to look for opportunities to increase program capabilities to 

meet industry demand by charging users appropriate cost recovery fees according to regulation.
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Chapter VII – Management of Lands and Resources Page VII - 113

The BLM also receives reimbursement for the costs of material sales for the pipeline system in 

Alaska as required under Public Law 93-153, Section 101, which amended Section 28 of the 

Mineral Leasing Act of 1920. Funds are also collected from trespass recovery settlements and 

are used for rehabilitation of damaged property at the trespass site and other sites damaged by 

past mineral materials operations pursuant to Public Law 94-579, as amended, and Public Law 

93-153. Fees are also collected for development, operation and reclamation of mineral materials 

community pits and common use areas.

Long-Term Goals – The public lands are an important source of non-energy solid leasable 

mineral resources and mineral materials for the Nation. These minerals are vital components of 

basic industry and quality of life in the United States. The Other Mineral Resources program 

goal is to provide the minerals needed to support local infrastructure and economic 

development. Demand is increasing worldwide for some products generated from non-energy 

solid leasable minerals, such as fertilizers, which are used in producing food and biofuels, and 

gilsonite, which is used in drilling fluids for energy exploration. The program processes sales 

and permits for mineral materials, such as sand, gravel, stone, and clays. These common 

materials are essential for maintenance and construction of the access that is needed to provide 

basic land management. Mineral materials are essential for building and maintaining energy 

development and production infrastructure and facilities.

2015 Program Performance

Demand for non-energy solid leasable minerals, especially potash, phosphate and hardrock 

minerals (copper, nickel, etc.) on acquired lands has increased substantially for several years. 

This demand is expected to continue to increase. The number of acres under contract is 

expected to remain the same in 2015 as in 2013. The number of acres leased for non-energy 

minerals is expected to increase as long-term NEPA analyses are completed.

The percentage of pending cases of permits and lease and contract applications processed is 

expected to remain the same for non-energy leasing and increase slightly for mineral materials 

contracts in 2015.

The BLM also anticipates issuing updated guidance and instructions addressing the valuation 

of other mineral resources in 2015.
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Activity: Energy and Minerals Management

Subactivity: Renewable Energy Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Renewable Energy $000 21,275 29,061 +171 +0 +0 29,232 +171

FTE 141 153 +0 +0 153 +0

Justification of 2015 Program Changes

The 2015 budget request for the Renewable Energy Management Program is $29,232,000 and 

153 FTE. 

Program Overview

The Renewable Energy Management Program is responsible for processing right-of-way 

applications for wind energy, solar energy, geothermal energy and renewable energy 

transmission 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 land-use decisions.

The President has established an aggressive goal to increase permitting of new renewable 

electricity generation on public lands to 20,000 megawatts (MWs) by 2020 (relative to 2009 

levels). The BLM is committed to doing its part to contribute to this goal by permitting 

environmentally responsible renewable energy projects on public lands. State renewable 

energy portfolios, investment tax credits for solar energy projects, volatile oil prices, and 

international concern about global warming have all contributed toward public and industry 

interest in utility-scale solar energy development. 

The Renewable Energy Program consists of three main components: Solar Energy, Wind 

Energy, and Geothermal Energy

The BLM and the Department continue to place a high priority on the processing of renewable 

energy projects on the public lands Secretarial Order 3285, issued March 11, 2009, 

established the development of environmentally responsible renewable energy as a priority for 

the Department. Increased production of renewable energy will create jobs, provide clean 

energy, and enhance the energy security of the U.S. by adding to the domestic energy 

supply. As part of the priority goal for renewable energy, the Department and the BLM 

established an aggressive goal of approval of 10,000 megawatts by the end of 2012. The BLM 

exceeded this goal with the approval of a total of 12,862 MWs of renewable energy projects 

(including connected-action projects) before the end of 2012. With projects approved thru 

January 2014, the BLM has now approved a total of 15,766 MWs of renewable energy 

projects. This approved capacity has the potential to provide power for more than 4.5 million 

homes. The BLM will continue to pursue renewable energy development on the public lands in 

a “smart-from-the-start” manner to meet these future goals.
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Solar Energy – Solar radiation levels in the Southwest are some of the best in the world. The 

BLM manages more than 20 million acres of public lands with excellent solar potential in six 

States: California, Nevada, Arizona, New Mexico, Colorado and Utah. On October 12, 2012,

the Department of the Interior and the Department of Energy as co-lead agencies published the 

Record of Decision (ROD) on the Programmatic Environmental Impact Statement (PEIS) for 

Solar Energy Development in Six Southwestern States. The Solar PEIS establishes, for the first 

time, a solid foundation for long-term, landscape-level planning to help facilitate better, smarter 

siting of utility-scale solar projects that avoids or minimizes conflicts with important wildlife, 

cultural and historic resources. The ROD on the Solar PEIS responded to extensive comments 

on the Supplemental Draft PEIS and includes incentives for solar developers who site projects 

in solar energy zones, offering reduced permitting times within zones and a sufficiently flexible 

variance process to allow development of well-sited projects outside of zones. The ROD also 

makes clear that the Solar Energy Program will continue to incorporate other parallel planning 

efforts, including State level efforts, to establish additional solar energy zones to meet market 

demand. The ROD includes 17 solar energy zones, totaling about 285,000 acres potentially 

available for solar energy development.

In 2010, the BLM approved the first utility-scale solar energy projects on public lands. To date, it 

has approved 25 solar projects including both generation projects on public lands as well as 

access and transmission projects on public lands essential to facilitate solar generation projects 

on private land. The projects include a variety of solar technologies and range in size from a 45-

megawatt photovoltaic system on 422 acres to a 1,000-megawatt parabolic trough system on 

7,025 acres. These 25 projects have the potential to generate over 7,500 megawatts of clean, 

renewable energy—enough energy to power over 2.2 million homes.

Wind Energy – The BLM manages 20.6 million acres of public lands with wind potential and 

has approved more than 35 wind energy projects capable of producing nearly 5,000 megawatts 

of clean, renewable energy. The total approved capacity includes both wind energy production 

facilities on public lands and a number of access and transmission projects on public lands 

essential to facilitate wind energy production projects on private land. 

A PEIS relating to the authorization of wind energy projects was completed in June 2005. This 

PEIS provides an analysis of the development of wind energy projects in the West. In 

conjunction with the publication of this PEIS, the BLM amended 52 land use plans to allow for 

the use of applicable lands for wind energy development. BLM offices are able to use this PEIS 

as an aid in analyzing impacts for specific applications for the use of public lands for wind 

energy use. The BLM issued a wind energy policy in December 2008 to provide guidance on 

best management practices; measures to mitigate potential impacts on birds, wildlife habitat, 

and other resource values; and guidance on administering wind energy authorizations. 

The BLM continues to conduct studies necessary to evaluate and process applications for 

rights-of-way for the siting of wind energy projects and applications for rights-of-way for electric 

transmission lines from these projects. There are currently a total of 39 approved wind energy 

and transmission connected-action projects on the public lands with a total approved capacity of 

5,557 MWs. 

Geothermal Energy – The BLM has the delegated authority for leasing on more than 245 

million acres of public lands (including 104 million acres of National Forest managed by the U.S. 

Forest Service) with geothermal potential in 11 western States and Alaska. The BLM currently 

manages more than 800 geothermal leases, with over 70 leases in producing status generating 

over 2,000 megawatts of installed geothermal energy on public lands. This amounts to over 40 
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Chapter VII – Management of Lands and Resources Page VII - 117

percent of the total U.S. geothermal energy capacity. In May 2007, the Department of the 

Interior published final regulations on geothermal energy production on public lands requiring 

more competitive leasing and offering simplified royalty calculations.

A PEIS to assess geothermal leasing on the public lands was completed in October 2008. The 

subsequent ROD amended 114 BLM resource management plans and allocated about 111 

million acres of Bureau-managed public lands as open for leasing. An additional 79 million acres 

of National Forest System lands are also legally open for leasing. Currently, the BLM has 

authorized a total of 48 geothermal projects (72 producing geothermal leases) with a total 

approved capacity of 2,142 MWs.

Competitive Leasing Process – 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. Interior initially 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 (since 2009). The 

Department’s new Priority Goal is to increase this to 16,500 megawatts by the end of 2015. 

The Department will successfully meet these goals if a majority of the energy projects that were 

designated as priority projects for 2014 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.

2015 Project Status – For Fiscal Years 2014 and 2015, the BLM has identified additional 

priority projects representing about 4,900 megawatts. The BLM is developing this priority list in 

collaboration with the Bureau of Indian Affairs, the U.S. Fish and Wildlife Service, the National 

Park Service and the Department of Defense, with an emphasis on early consultation. Priority 

projects are 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 uses 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. 
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Page VII - 118 Chapter VII – Management of Lands and Resources

2015 Program Performance

In 2015, the BLM will continue to implement the strategy to:

 Increase smart renewable energy development on public lands;

 Support Interior’s Renewable Energy Priority Performance Goal; and

 Implement actions regarding identifying leasing and development opportunities for solar 

energy projects in designated solar energy zones. Making these lands available for BLM 

leasing proposals will provide for the best siting locations for environmentally sound 

solar energy development projects. The BLM has initiated a rulemaking process to 

establish rules to guide this leasing program to include a nomination and request for 

proposal process, with the expectation that this will ultimately lead to a competitive 

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

development. 
Realty and Ownership 

Management 

 

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Chapter VII – Management of Lands and Resources Page VII - 119

Activity: Realty and Ownership Management

2013 

Actual

2014 

Enacted

2015 President's Budget

Fixed 

Cost 

Changes

Transfers Program 

Changes

Requested 

Amount

Change 

from 

2014

Alaska Conveyance $000 16,568 22,000 +117 +0 -3,117 19,000 -3,000

FTE 125 105 +0 0 105 +0

Cadastral, Lands, & 

Realty Management

$000 0 0 +424 +45,658 +5,000 51,082 +51,082

FTE 0 0 +379 0 379 +379

Cadastral Survey $000 11,276 11,276 +0 -11,276 +0 0 -11,276

FTE 88 87 -87 0 0 -87

Land & Realty 

Management

$000 34,382 34,382 +0 -34,382 +0 0 -34,382

FTE 299 292 -292 0 0 -292

Total, Realty & 

Ownership 

Management

$000 62,226 67,658 +541 +0 +1,883 70,082 +2,424

FTE 512 484 +0 0 484 +0

The 2015 budget request for the Realty and Ownership Management activity is $70,082,000 

and 484 FTE, a net program change of +$1,883,000 above the 2014 enacted level. In 2015, the 

BLM proposes to consolidate the Cadastral Survey program and the Lands & Realty 

Management program.

Activity Description

The Realty and Ownership Management activity has two programs that are focused on the use 

of lands and transfer of BLM-managed lands. 

 The Alaska Conveyance Program transfers land title from the Federal Government to 

individual Alaska Natives, Alaska Native Corporations, and the State of Alaska pursuant 

to a number of laws. 

 The Cadastral, Lands, and Realty Program provides cadastral survey services that are 

an important component to managing both Federal and private lands and manages 

authorized uses of the land for rights-of-way for pipelines, transmission lines for 

electricity and renewable energy, and other uses. This program also authorizes uses of 

the public lands for commercial filming and other purposes, and implements changes to 

land ownership by exchanging and purchasing lands, and by selling lands no longer 

needed for Federal purposes. 
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Activity: Realty and Ownership Management

Subactivity: Alaska Conveyance and Lands

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Alaska Conveyance $000 16,568 22,000 +117 +0 -3,117 19,000 -3,000

FTE 125 105 +0 +0 105 +0

Summary of 2015 Program Changes for Alaska 

Conveyance: ($000) FTE

Streamline Conveyance Process -3,117 +0 

Total -3,117 +0 

Justification of 2015 Program Changes

The 2015 budget request for the Alaska Conveyance and Lands Program is $19,000,000 and 

105 FTE, a program change of -$3,117,000 and 0 FTE from the 2014 enacted level.

Streamline Conveyance Process (-$3,117,000/0 FTE) – The BLM is reducing base funding for 

the Alaska Conveyance and Lands program to reflect expected achievements resulting from a 

significant increase in funding provided in 2014 and efficiencies created through recent 

implementation of more efficient cadastral survey methods, as well as previous streamlining 

improvements to the conveyance process. Conveyance work has been ongoing since the 

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

the conveyance program and reduce program costs. The BLM has already issued final or 

interim conveyance on most of these acres and is developing a strategy to complete final 

transfers. The 2015 request level plots a course for completing all surveys and land transfers in 

ten years.

Program Overview

The Alaska Conveyance and Lands Program transfers land title from the Federal government to 

individual Alaska Natives, Alaska Native Corporations, and the State of Alaska pursuant to the 

1906 Native Allotment Act, the Alaska Native Veterans Allotment Act of 1998, the Alaska Native 

Claims Settlement Act of 1971 (ANCSA) and the Alaska Statehood Act of 1959 (Statehood Act). 

Conveyance work has been ongoing since the 1960s. In 2004, the Alaska Land Transfer 

Acceleration Act (Acceleration Act) resolved conflicts between these laws and established 

deadlines for Alaska Native corporations and the State of Alaska to file final selection priorities.

The Alaska Conveyance and Lands Program performs adjudication, cadastral survey, easement 

identification, land examination, land record review to complete the land patent process, and 

Standards for Boundary Evidence assessments for Federal land, Indian land, and Native 

Corporation land managers. These processes are detailed below.

 Adjudication: Adjudication is used to determine the legal sufficiency of a land title 

application for the purpose of passing right, title and interest of the Federal government 

of public lands. The BLM provides extensive outreach to Native corporations, including 
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face-to-face meetings with corporate boards in local communities and to the State of 

Alaska to obtain final conveyance priorities.

 Cadastral Survey: The cadastral survey component of the Alaska Conveyance and 

Lands Program provides the cadastral services necessary to issue patent. These 

services include preparing supplemental plats from existing survey plats and other 

information when possible; making administrative title navigability determinations to 

facilitate conveyance; making administrative determinations of emerged island title 

claims; issuing recordable ‘Disclaimers of Interest of Title’ for the beds of navigable 

rivers and other waterways; performing responsibilities as trustee for Alaska Native 

townsites created under the Alaska Native Townsite Act; providing assistance in 

determining maps of boundaries and performs surveys for Village corporation 

reconveyances required under Section 14(c) of the ANCSA; collects Public Land Survey 

System data to distribute through the web-based Spatial Data Management System 

(SDMS); issuing ‘Standards for Boundary Evidence Certificates’ prior to transactions and 

projects to assist the authorized officer assess the risk caused by errors and 

misrepresentations in the public record and by antiquated surveys, and maintaining upto-date digital copies of all survey records to distribute through the SDMS.

 Easement Identification: Easement identification must be completed pursuant to 

Section 17(b) of the ANCSA for Native corporation selections that have not been 

transferred. This process involves participation by the public, the State of Alaska and 

the corporations themselves.

 Land Examination: On the ground land examinations are conducted to resolve conflicts 

between Native allotment claims and to settle use and occupancy matters, including 

trespass and the presence of hazardous materials.

 Land Record Review: In 2004, the Acceleration Act established deadlines for ANCSA 

corporations and the State to file priorities. Throughout Alaska, millions of the same 

acres were applied for by village corporations, regional corporations and the State. As 

part of the conveyance process, the BLM reviews selections to identify conflicts and 

ensure correct depiction in land records.

Provisions in ANCSA and the Statehood Act allow transfers of equitable title to unsurveyed 

lands through ‘Interim Conveyance’ for Native corporation selections and ‘Tentative Approval’

for State selections. Both types transfer right, title and interest of the Federal government but 

final patents (legal title) cannot be issued until cadastral survey of the final boundaries has been 

completed. Land patents are required by Federal law for completion of transfers and are 

required for almost all types of State and private development, financing, leasing, and disposing 

of property. Patent issuance is dependent upon survey plats and the patenting process follows 

approximately 18 months after field survey operations have been completed (i.e. field survey 

work completed in FY 2015 may have final title issued in early FY 2017).

A new and innovative process will fulfill our commitment to the State of Alaska years ahead of 

the current schedule, at reduced costs while still providing a good product. This approach fully 

complies with the Statehood Act, is fiscally responsible in light of budget realities, and 

maximizes use of modern technology. With this method, there are fewer days in the field, less 

exposure to risks and hazards encountered in the field including encounters with bears and 

performing helicopter landings on unimproved landing areas. The new survey products will 

allow the State and their stakeholders to locate final patent corners on-the-ground by usage of 

the Global Navigation Satellite System (GNSS), with Online Positioning User Service (OPUS) 

on the National Spatial Reference System (NSRS).
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 123

By the end of 2013, the BLM surveyed and patented 97 million acres or 65 percent of the 

original 150 million acres (Phase 2, below). Approximately 46 million acres, or 31 percent, are 

under some form of ‘Tentative Conveyance’ but have not been surveyed (Phase 1, below). 

Additionally, about seven million acres or five percent, of the lands need to be both surveyed 

and conveyed. The chart below displays the status of all conveyances, as of the end of 2013.

Status of All Conveyances in Alaska – Current Progress by Phase

(as of September 30, 2013)

In 2014, the BLM plans to complete 1,000 miles of new field survey (Phase 1, above) and 

approve 1,200 miles of prior cadastral field survey (Phase 2, above.). The BLM will also 

process 40 Native allotment claim applications. Approximately two million acres of Native 

corporation entitlements and two million acres of the State of Alaska entitlement will be 

patented.

The current phase of Native Corporation and State adjudication requires meetings to resolve 

conflicts between corporation and State selections so 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.

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.

2015 Program Performance

In 2015, the BLM will approve 1,000 miles of prior cadastral field survey and complete 700 miles 

of new field survey. The BLM will also process 40 Native allotment claim applications, and 

patent acreage surveyed and platted in previous years. Approximately two million acres of 

1,888,659 

10,463,962 

33,355,844 

5,325,634 

35,554,754 

63,644,613 

 -

 10,000,000

 20,000,000

 30,000,000

 40,000,000

 50,000,000

 60,000,000

 70,000,000

Phase 1: Not started Phase 2: Lands interim

conveyed

Phase 3: Final survey &

patented complete

Alaska Native Corporations State of Alaska

45,708,465 total acres 104,525,001 total acres
2015 Budget Justifications Bureau of Land Management

Page VII - 124 Chapter VII – Management of Lands and Resources

Native corporation entitlements and two million acres of the State of Alaska entitlement will be 

patented. Transfer of title through ‘Interim Conveyance’ or ‘Tentative Approval’ will continue to 

be completed, as necessary, for Native corporations and the State of Alaska.

A combined total of 19,178 parcel applications were filed under the 1906 Native Allotment Act

and the Alaska Native Veteran Allotment Act of 1998. Over 18,845 of these claims have been 

closed through patent or rejection, leaving 333 applications pending. Although the 1906 Native 

Allotment Act was repealed by ANCSA, claims pending with the Department up to the time of 

repeal still must be addressed by the BLM. 

A total of 45.7 million acres of Native corporation entitlements have been identified; survey has 

been completed and patents have been issued for 33.4 million acres (73 percent), leaving 12.4

million acres (27 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 63.6 million 

acres (61 percent), leaving 40.9 million acres (39 percent) that still require survey and patent. 

The majority of the land not surveyed and patented is under either interim conveyance or 

tentative approval. 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 125

Activity: Realty and Ownership Management

Subactivity: Cadastral, Lands & Realty Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Cadastral, Lands & Realty 

Mgmt

$000 0 0 +424 +45,658 +5,000 51,082 +51,082

FTE 0 0 +379 +0 379 +379

Cadastral Survey $000 11,276 11,276 +0 -11,276 +0 0 -11,276

FTE 88 87 -87 +0 0 -87

Land & Realty 

Management

$000 34,382 34,382 +0 -34,382 +0 0 -34,382

FTE 299 292 -292 +0 0 -292

Summary of 2015 Program Changes for Cadastral, Lands & Realty Mgmt: ($000) FTE

Transmission Corridors +5,000 +0 

Total +5,000 +0 

Other Resources Supporting Cadastral, Lands & Realty Mgmt:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Public Survey $000 987 611 659 +48

FTE 9 9 9 +0

Reimbursable Cadastral Survey $000 6,811 6,290 6,290 +0

FTE 72 0 0 +0

Rights of Way Processing $000 13,209 16,900 17,646 +746

FTE 120 119 119 +0

Cost-Recovery Realty Cases $000 964 1,000 1,044 +44

FTE 3 4 4 +0

Notes:

- Public Survey amounts are shown as new budget authority derived from non-federal sources (advances made by private individuals to pay 

the costs incidental to land surveys requested by them); 43 U.S.C. 759 provides for accomplishment of public surveys of whole townships 

through a trust fund and 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, and 31 U.S.C. 1321(a) classifies the activities of "expenses, public survey work, general" and 

"expenses, public survey work, Alaska" as trust funds; These funds are appropriated on a permanent basis

- Amount in 2013 and 2014 for Public Survey shown net of sequestration

- More information on Public Survey is found in the Miscellaneous Trust Funds chapter

- Actual and estimated obligations, by year for Public Survey are found in President's Budget Appendix under the BLM section for 

Miscellaneous Trust Funds account at: http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

- 2014 and 2015 Reimbursable Cadastral Survey amounts are shown as estimated transfers from the U.S. Forest Service, the Bureau of 

Indian Affairs, and other Agencies (including the U.S. Fish and Wildlife Service and the National Park Service)

- Rights of Way Processing amounts are shown as new budget authority derived from fees charged to recover certain costs of processing 

rights-of-ways (ROW); the Federal Land Policy Management Act of 1976, as amended (43 USC 1735) and the Mineral Leasing Act of 1920, 

as amended by the Trans-Alaska Pipeline Act of 1973, Section 101 (30 USC 185) appropriates these funds on a current basis

- Amount in 2013 for Rights of Way Processing shown net of sequestration

- More information on Rights of Way Processing is found in the Service Charges, Deposits, & Forfeitures chapter

- Actual and estimated obligations, by year for Rights of Way Processing are found in President's Budget Appendix under the BLM section for 

Service Charges, Deposits, & Forfeitures account at: http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

- Cost-Recovery Realty Cases amounts are shown as new budget authority derived from fees from applicants to cover administrative costs for 

the conveyance of Federally-owned mineral interests, recordable disclaimers of interest, and leases, permits, and easements; Federal Land 

Policy Management Act of 1976, as amended (43 USC 1735) appropriates these funds on a current basis

- Amount in 2013 for Cost-Recovery Realty Cases shown net of sequestration

- More information on Cost-Recovery Realty Cases is found in the Service Charges, Deposits, & Forfeitures chapter

- Actual and estimated obligations, by year for Cost-Recovery Realty Cases are found in President's Budget Appendix under the BLM section 

for Service Charges, Deposits, & Forfeitures account at: http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf
2015 Budget Justifications Bureau of Land Management

Page VII - 126 Chapter VII – Management of Lands and Resources

Justification of 2015 Program Changes

The 2015 budget request for the Cadastral, Lands, and Realty Management Program is 

$51,082,000 and 379 FTE, a total change of +$51,082,000 from the 2014 enacted level, 

including a program change of +$5,000,000 and an internal transfer of +$45,658,000 and +379 

FTE.

Cadastral, Lands, and Realty Management Consolidation [+$45,658.000/+379 FTE] – In 

2015, the BLM proposes to consolidate the Cadastral Survey program and the Lands & Realty 

Management program. These activities include cadastral survey services, rights-of-way, 

permits, leases, land sales, and land exchanges. This consolidation will allow for better 

management and more flexibility of these activities, which directly affect the quality of life for 

communities near BLM-administered public lands. 

Transmission Corridors (+$5,000,000/0 FTE) – Aging electrical infrastructure in the West 

requires substantial upgrades to improve reliability and increase capacity. The upgrades will 

also facilitate renewable energy development in the West, including on BLM-administered public 

lands. The BLM is poised to meet these energy needs through designations of energy corridors 

in low conflict areas and siting high voltage transmission lines, substations and related 

infrastructure in an environmentally sensitive manner. 

The requested funding would position the BLM to strategically plan for the long term increased 

demand and updates to the electric grid throughout the West with an improved and updated 

assessment process for the development and siting of energy corridors and rights-of-way 

(ROWs). Strategic planning would take into consideration renewable energy development 

including wind, solar, geothermal and hydropower. Planning activities would include revising 

land use plans in coordination with Federal, State, local and tribal stakeholders; revising energy 

corridors; developing landscape-level mitigation and best management practices; and 

synchronizing BLM and U.S. Forest Service land use/management plans with transmission 

planning conducted by the Western Electricity Coordinating Council.

Program Overview

Cadastral & Lands – The Cadastral Survey Program conducts the official Federal Authority 

Surveys that are the foundation for all land title records in large sections of the United States 

and provides Federal and Tribal land managers, and their adjoining non-Federal landowners, 

with information necessary for land management. 

The program provides direct support to the BLM’s renewable energy, minerals, realty, law 

enforcement, forestry, recreation, National Land Conservation System and fire programs; helps 

to reduce unauthorized use; assists with development activities on BLM-managed lands; and, 

helps fulfill the Secretary’s fiduciary trust responsibilities for cadastral services in Indian Country. 

Additionally, the BLM provides cadastral services for other Federal land management agencies, 

including the National Park Service, the U.S. Fish and Wildlife Service, the Bureau of 

Reclamation, the U.S. Forest Service, and other entities. 

Companies, non-profit organizations, and State and local governments use the land records to 

apply to obtain ROW grants to use the public lands. The BLM uses these records to process 

ROWs for roads, pipelines, transmission lines and communication sites. ROWs based on 

accurate land records play an essential role in the cost-effective development and transportation 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 127

of energy sources by providing the certainty necessary for infrastructure building. Similarly, 

accurate land and survey records are essential for the development and construction 

communication sites that provide equipment necessary for the transmission of television 

broadcasts and the cellular phone network, which among other important benefits, enhance 

emergency services decrease impacts to human health and safety on sensitive public lands. 

Conducting Federal Authority Surveys requires the determination of boundaries, the marking of 

corner positions with “brass cap” markers, posting and marking the boundary lines, and the filing

of associated approved records in the Official United States Records System. Additional 

support services include accurately positioning legal descriptions; providing standards for 

boundary evidence assessments and management of land boundary plans to reduce risks 

including unauthorized use; providing geospatial products and services to support development 

of renewable energy projects; and updating and modernizing riparian boundaries where 

resources and land values are at a premium.

The BLM also prepares the documents required to conduct land sales, exchanges and 

withdrawals to ensure efficient and effective management of the public lands. Each record is 

stored and tracked for every authorization, review, and land withdrawal to ensure the most 

appropriate uses. The BLM works closely with the Department of Defense to coordinate the 

documentation of withdrawals for military purposes and coordinate records management of 

adjacent military and public lands. The BLM also manages the documents of grants of lands to 

State, local governments and non-profit organizations for recreation and public purposes.

The BLM generates the Public Land Survey System (PLSS) Data to represent land ownership 

boundaries in a coordinated, standardized digital fashion. GIS layers depend on PLSS Data as 

the base layer for many BLM processes including surface management agency, withdrawals, 

leasing, rights-of-way, sales, exchanges and stipulations.

In addition, the BLM is the custodial agency for land tenure records that date back to the 1800s. 

The BLM currently manages over nine million title documents as well as cadastral survey 

records from across the Nation. The General Land Office Automated Records System (GLO 

Records) is responsible for making land tenure records available on the Internet via the GLO 

Records website (http://www.glorecords.blm.gov). 
2015 Budget Justifications Bureau of Land Management

Page VII - 128 Chapter VII – Management of Lands and Resources

The image below illustrates the complexities of the BLM’s Land Information System.

Realty Management – The BLM manages the grant documents system for ROW and other use 

authorizations for public lands. ROWs are granted for many purposes, including electricity 

transmission, roads, and water pipelines. The program also prepares land tenure documents for 

realty activities including land sales, land exchanges, and withdrawals.

ROW assists in providing for basic access, power, and communication infrastructure needs of 

cities, towns, and rural communities. The BLM manages these governing ROW and land tenure 

documents including the tracking of new and amended ROW authorizations.

Land sales, exchanges and withdrawals are also conducted to ensure efficient and effective 

management of the public lands. Land exchanges and withdrawals are useful land management 

tools to meet the multiple use mission of the BLM. The BLM authorizes, reviews, and revokes 

land withdrawals to ensure the most appropriate uses and works closely with the 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 administrates 

grants of lands to State, local governments and non-profit organizations for recreation and 

public purposes at reduced cost using its authority under the Recreation and Public Purposes 

Act.

Rights-of-Way – The BLM grants land use authorizations for a wide variety of commercial and 

noncommercial purposes as allowed by law. Many companies, non-profit organizations, and 

State and local governments apply to the BLM each year to obtain ROW grants to use the 

Cadastral Survey provides accurate location of the Public Land Survey 

System, which in turn supports the BLM multiple use mandate while 

protecting the BLM’s land and resources from unauthorized use.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 129

public lands for roads, pipelines, transmission lines and communication sites. Energy-related 

ROWs play an essential part in the transportation of energy sources. Cadastral surveys and 

other boundary services are provided to facilitate these actions and help reduce boundary 

disputes, trespass and litigation.

In 2011, the BLM initiated a pilot project that centralized billing and collection of communications 

use rentals. This pilot project has allowed the BLM to enhance the billing and collections 

process, improve the timeliness and quality of customer service and provide consistency in the 

billing and collections functions. Beginning in 2014, these activities will be transitioned to the 

BLM’s National Operations Center. For more information, please see the Communication Site 

Management section.

The BLM will administer approximately 170,000 ROWs on the public lands as of FY 2014. The 

BLM processes the applications for ROW grants to use the public lands for roads, pipelines, 

transmission lines, and communication sites. The BLM processes energy-related ROWs 

essential in the transportation of energy sources, from 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 processed to install equipment 

necessary for the transmission of television broadcasts and the cellular phone network that 

provide and enhance emergency services in support of human health and safety. Rights-of-way 

assist in providing for basic access, power, and communication infrastructure needs of cities, 

towns, and rural communities. The BLM administers new and amended ROW authorizations, 

conducts on-the-ground inspections to ensure compliance with terms and conditions of the 

authorization, and conducts studies to determine the suitability of future ROW locations and 

uses.

Transmission – The BLM continues to advance renewable energy development on public 

lands as part of a balanced energy policy for the Nation. In order to bring to market the 

renewable energy authorized for production from projects located on or crossing BLM public 

lands, and to unlock new renewable energy opportunities throughout the West, the BLM must 

strengthen its environmental review and permitting procedures as well as improve the 

designation of existing and future energy corridors in land use plans.

In October 2009, nine Federal departments and agencies approved a Memorandum of 

Understanding to expedite the siting of electric transmission facilities. In June 2011, the same 

agencies created a Rapid Response Team for Transmission (RRTT). Expediting the siting of 

electric transmission projects on BLM-administered lands is a priority of the Secretary of the 

Interior. The emphasis on these projects was reiterated in the August 31, 2011, Presidential 

Memorandum to executive departments and agencies, Speeding Infrastructure Development 

through More Efficient and Effective Permitting and Environmental Review, as well as the March 

22, 2012 Executive Order 13604, Improving Performance of Federal Permitting and Review of 

Infrastructure Projects.

The President’s Executive Order No. 13604 on infrastructure further increased the emphasis on 

interagency collaboration in the siting and permitting of high voltage transmission projects. The 

BLM is actively coordinating with the Department of Energy and Forest Service to review 

existing corridors and will identify regions in the western U.S. to focus on corridor revisions, 

additions and deletions. The BLM is also working with stakeholders to review and update 

interagency operating procedures that are required when siting projects within energy corridors 

designated pursuant to Section 368 of the Energy Policy Act of 2005. The BLM is preparing to 
2015 Budget Justifications Bureau of Land Management

Page VII - 130 Chapter VII – Management of Lands and Resources

issue updated policy guidance regarding permitting transmission projects and energy corridor 

use and management. 

In June 2013, the BLM deployed an eight person National Transmission Support Team 

dedicated full-time to high voltage transmission and related infrastructure projects. The BLM is 

also working to update core training courses with an increased emphasis on distance learning 

options. The BLM has taken steps to align and coordinate the activities of staff working on 

transmission line project with staff in our Renewable Energy Coordination Offices through joint 

meetings, calls and training efforts. 

Other Funding Sources

Benefitting Programs & Agencies: Approximately 45 percent of all work completed by the 

Cadastral Survey Program is funded by other benefitting BLM subactivities and other benefitting 

agencies. In addition, GCDB activities are supported partially through partnerships with States, 

counties, and municipalities. In the past, these partnerships have allowed the BLM to leverage 

resources while benefitting all parties to the agreement and the public.

The Federal Land Transaction Facilitation Act (FLTFA) is proposed for reauthorization in 2015 

to allow lands identified as suitable for disposal in recent land use plans to be sold using the 

FLTFA authority. FLTFA sales revenues would continue to be used to fund the acquisition of 

environmentally sensitive lands and the administrative costs associated with conducting sales. 

FLTFA was first enacted in July 2000. It provided for the use of a percentage of revenues from 

the sale or exchange of public lands identified for disposal under land use plans in effect as of 

the date of enactment to acquire inholdings within certain federally designated areas, or lands 

adjacent to those areas, which contain exceptional resources, and to administer the lands sale 

program. Of the funds used for acquisition, 80 percent were to have been expended in the same 

State in which the funds were generated, but 20 percent could have been expended for 

acquisition in any of the 11 other western states. Up to 20 percent of revenues from disposals 

may have been used for administration costs and other expenses. FLTFA expired in July 2010, 

but was subsequently reauthorized for one year, expiring in July 2011. 

The Southern Nevada Public Land Management Act of 1998 (SNPLMA) became law in October 

1998. It allows the BLM to sell public lands within a specific boundary around Las Vegas, NV. 

The revenue derived from these land sales is split between the State of Nevada General 

Education Fund (5 percent), the Southern Nevada Water Authority (10 percent), and a special 

account (85 percent) available to the Secretaries of the Interior and Agriculture for use 

throughout Nevada for parks, trails and natural areas; capital improvements; conservation 

initiatives; multi-species habitat conservation plans; environmentally sensitive land acquisition; 

and Lake Tahoe restoration projects. Other provisions in SNPLMA direct certain land sale and 

acquisition procedures and provide for the sale of land for affordable housing. 

Cost Recovery: The BLM recovers costs for processing applications and monitoring right-of-way 

grants on public lands. Although the BLM is authorized to collect cost recovery in certain 

circumstances some customers, such as, State and local governments are not subject to cost 

recovery. 

Please see the Permanent Operation Funds Chapter for more information on FLTFA, SMPLMA, 

and other land sales accounts. For more information on cost recovery efforts, please see the 

Service Charges, Deposits, and Forfeitures Chapter.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 131

Critical Factors – Urban growth near BLM lands is creating costly management problems, such 

as encroachment, trespass, and unauthorized recreational activities on public lands. Proactive 

utilization of cadastral surveys along to the urban interface provides boundary location to 

alleviate this emerging issue and reduce the number of lawsuits.

The demand for cadastral services to support energy development activities is increasing. 

Review of survey plats is a necessary step in processing Applications for Permits to Drill. 

Program staff review the plats to ensure that the construction of access roads, well pads, and 

well bottom drilling targets do not infringe on other property or mineral rights. Chain of survey 

and legal description reviews also help to determine whether land ownership and boundary 

locations are legally defensible prior to development. There is greater demand for GCDB data to 

provide accurate digital graphic portrayal of the Public Land Survey System. The energy 

programs use the GCDB to display all stipulations and current leases in an automated format. 

This facilitates more efficient energy development and enables public land managers to make 

decisions that are more informed.

With the President and the Secretary’s goals to increase renewable energy development on the 

public lands and with many states enacting renewable energy portfolio standards that require 

utility companies to increase renewable energy supplies as part of their electricity capacity, 

renewable energy right-of-way processing workload for BLM has increased dramatically. Much 

of this work is customer and market driven which makes it difficult to predict the number of 

applications that will be filed for the various authorizations with a high level of certainty.

2015 Program Performance

In 2015, the program will continue to perform the core functions of directing and approving 

surveys, addressing public inquires on Federal land status, consulting with staff members from 

other programs to advise on boundary, title, and geospatial issues, providing direction and 

control for field surveys paid for by other entities, and managing the geographic coordinates of 

the PLSS Data.

In addition, the BLM will continue to implement the nine recommendations from an Office of the 

Inspector General (OIG) audit report, “Department of the Interior’s Management of Land 

Boundaries” (Audit No.C-IN-MOA-0001-2009). This report states, “proper survey and 

management of high-risk lands with antiquated surveys has the potential to generate hundreds 

of millions of dollars in revenue from lands with valuable surface and subsurface resources.” In 

response, the BLM will continue issuing guidance to BLM State Offices through Instruction 

Memoranda directing them to identify lands with revenues lost or at risk due to antiquated 

boundary evidence and propose a plan for resolution. 

In response to the OIG report, the BLM is 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. 
2015 Budget Justifications Bureau of Land Management

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In 2015, the bureau will implement a new geospatial publication web service to replace its 

outdated internal and external sites. The web service will provide search, retrieve, display and 

delivery functionality for authorized BLM mineral, land status and resource data.

Providing title record data for the Integrated Lands System databases will continue. The goal is 

to collect, maintain and publish the official Federal land status record data including accurate 

and consistent land acreage and other statistical data to be used by the public, private industry 

and other Federal land management agencies. The data are to be collected and maintained at 

a high level of accuracy, verified to ensure it meets acceptable quality standards and published 

in a timely consistent manner. The system will support legal, policy and regulatory requirements 

and efficiently deliver key business products (Public Land Statistics, Master Title Plats, 

Historical Indices, Reports, geospatial maps and orthophotographs, etc.).

In 2015, the BLM will also continue to focus on responsible energy development and associated 

transmission lines. Specifically the BLM will have a continued emphasis on completing timely 

environmental reviews and permitting for the four transmission Pilot Projects identified as a 

priority by the President in October 2011. Similarly, the BLM will focus resources on 

environmental reviews and permitting of transmission lines that serve BLM’s 2015 Priority 

Renewable Energy Projects. Collectively, these priority transmission projects will replace aging 

infrastructure, enhance grid reliability, and facilitate renewable energy development while 

serving the needs of communities across the western U.S.

The BLM will continue to conduct public land sales, revoke public withdrawals, and facilitate 

military base closures. The bureau will also review public land withdrawals and anticipates 

revoking withdrawals for 64,000 acres.
Communication Site 

Management 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 133

Activity: Communication Site Management

2013 

Actual

2014 

Enacted

2015 President's Budget

Fixed 

Cost 

Changes

Transfers Program 

Changes

Requested 

Amount

Change 

from 

2014

Communication 

Site Management

$000 1,898 2,000 +0 +0 +0 2,000 +0

Offset -1,898 -2,000 +0 +0 +0 -2,000 +0

FTE 16 19 +0 -1 18 -1

Justifications of 2015 Program Changes

The 2015 budget request for the Communication Site Management Program is $2,000,000 and 

18 FTE.

Program Overview

The Communication Site Management Program processes applications for communications 

sites from commercial, private and governmental entities under Title V of the Federal Land 

Policy and Management Act of 1976 and issues right-of-way 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 both public and adjacent lands. The BLM tries to prevent unnecessary or undue 

degradation to public lands by promoting collocation on the communication site rights-of-way 

considering engineering and technological compatibility, national security and land use plans. 

The BLM also coordinates, to the fullest extent possible, all actions under the program with 

State and local governments, interested individuals, and appropriate quasi-public entities.

Demands and Trends – Prior to 1996, each user was required to have a separate 

authorization, even when users shared a site. In response to the Telecommunications Act of 

1996, the BLM implemented new regulations and policies that greatly simplified and streamlined 

the authorization and administration of these sites. The BLM now requires only the owners of 

the towers or facilities to have right-of-way authorizations, while other users of the sites can 

collocate in these facilities, as tenants or customers, without further BLM approval.

In 1996, there were 3,313 authorized communications users on BLM-administered land. The 

BLM currently has over 3,700 sites authorized for separate communication use rights-of-way. In 

total, the BLM has over 6,800 authorized communications users on these sites representing a 

105 percent increase from 1996. The BLM has increased the collection of rental fees from $2.0 

million in 1996, to $8.1 million in 2013 and an estimated $8.5 million in 2014 as a result of 

centralized billing and collections.

A significant challenge facing the BLM is ensuring that holders of communication site rights-ofway authorizations report accurate inventories of communications uses within their facilities to 

allow the Bureau to assess and collect the appropriate rent. Based on recent compliance 

inspections by program administrators, it is estimated that for every dollar of rent collected, at 

least one dollar is not collected. In order to better manage the development and use of 

communications sites and to mitigate the impacts on surrounding public lands, the BLM 
2015 Budget Justifications Bureau of Land Management

Page VII - 134 Chapter VII – Management of Lands and Resources

develops communication site management plans, which guides users and analyzes the impacts 

of the structures on the sites and the surrounding lands. These plans allow the BLM to manage 

sites better and often results in the collection of additional rent revenues. The BLM’s goal is to 

develop site management plans for all mountaintops with communication sites located on the 

public lands it manages. To date, the BLM has prepared 300 out of the total 1,485 site 

management plans needed.

In recent years, the BLM has focused on strengthening partnerships and improving its suite of 

BLM, interagency and industry sponsored right-of-way management courses, including the 

Communication Site Management Course, the National Lands Training for Line Officers and the

Beginning Lands and Realty Training.

In 2011, the BLM initiated a pilot project that centralized billing and collection of communications

use rentals. Centralization of billing has resulted in an approximate increase of $500,000 to $1.0 

million in rent collected each year beginning in calendar year 2011 due to improved reviews 

resulting in identification of unreported rent. The specialists processing payments have been 

trained to detect errors in the self-reported communications uses at each site. Centralization

has greatly improved customer service by providing customers with a single bill for multiple 

authorizations in a timely and efficient manner, and by allowing customers to provide payment 

to a single location. This pilot project has allowed the BLM to enhance the billing and collections 

process, improve the timeliness and quality of customer service and provide consistency in the 

billing and collections functions. Due to the success of this pilot effort, the BLM will continue the 

central billing efforts on a permanent basis. Beginning in FY 2014, operations of the 

centralization of communications use billing and collections will be transferred to the BLM 

National Operations Center.

2015 Program Performance

In 2015, the BLM will continue to process applications for communications site rights-of-way, as 

well as applications for assignments, amendments, and renewals. The Bureau will also continue 

to emphasize site administration and management. The BLM expects to complete 30 final 

communication site management plans, process 140 actions for lease or grant issuances, 

rejections, amendments, and renewals; process 67 actions for assignments, cancellations, 

relinquishments, and other administrative work; complete 120 site or facility inspections; and 

complete 15 actions for trespass. The BLM will train over 60 agency and industry personnel on 

the siting and administration of communication uses on public land, and train 75 line managers 

on their roles and responsibilities in the Communication Site Management Program.

In addition, the BLM will review the current communications use rental schedule as 

recommended by the Office of Inspector General in Report, Review of Rights of Way Grants 

Managed by the Department of the Interior, C-IN-MOA-0013-2010. In FY 2014, an advanced 

Notice of Proposed Rule Making will be published in the Federal Register. The BLM will work to 

respond to comments and begin the process of drafting new regulations for the Communication 

Site Management Program. 
Resource Protection & 

Maintenance

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Activity: Resource Protection & Maintenance

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Resource Mgmt Planning $000 37,125 37,125 +256 +0 +5,018 42,399 +5,274

FTE 229 226 +0 +3 229 +3

Law Enforcement $000 25,325 25,325 +153 +0 +179 25,657 +332

FTE 137 135 +0 +2 137 +2

Abandoned Mine Lands $000 16,687 16,687 +75 +0 +2,821 19,583 +2,896

FTE 67 67 +0 +0 67 +0

Hazardous Materials 

Management

$000 15,612 15,612 +106 +0 +0 15,718 +106

FTE 99 96 +0 -1 95 -1

Total, Resource 

Protection & 

Maintenance

$000 94,749 94,749 +590 +0 +8,018 103,357 +8,608

FTE 532 524 +0 +4 528 +4

The 2015 budget request for the Resource Protection and Maintenance activity is $103,357,000 

and 528 FTE, a net program change of +$8,018,000 and +4 FTE from the 2014 Enacted level.

Activity Description

The functions within the Resource Protection and Maintenance activity contribute to the 

protection and safety of public land users and environmentally sensitive resources.

 Resource Management Planning – The land use planning function is based on 

collaboration with local communities and State and tribal governments, as well as on 

science-based analysis.

 Resource Protection and Law Enforcement – The Resource Protection and Law 

Enforcement subactivity provides for the protection from criminal and other unlawful 

activities on public lands.

 Abandoned Mine Lands – The remediation of abandoned mine lands supports core 

programs by restoring degraded water quality, cleaning up mine waste that has been 

contaminated by acid mine drainage and heavy metals (such as zinc, lead, arsenic, 

mercury and cadmium), remediating other environmental impacts on or affecting public 

lands, and mitigating physical safety issues.

 Hazardous Materials Management – The Hazardous Materials Management Program 

provides for the prevention, mitigation, and remediation of the effects of hazardous 

material releases and other dangers on the public lands.

The Resource Protection and Maintenance activity funds land use planning and compliance 

processes, which are required by the National Environmental Policy Act (NEPA) and the 

Federal Land Policy and Management Act (FLPMA).
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Activity: Resource Protection & Maintenance 

Subactivity: Resource Management Planning

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Resource Mgmt Planning $000 37,125 37,125 +256 +0 +5,018 42,399 +5,274

FTE 229 226 +0 +3 229 +3

Summary of 2015 Program Changes for Resource Mgmt Planning: ($000) FTE

High Priority Planning Efforts +1,208 +3 

Applied Science - Enterprise Geospatial System +3,810 +0 

Total +5,018 +3 

Justification of 2015 Program Changes

The 2015 budget request for Resource Management Planning is $42,399,000 and 229 FTE, a 

program change of +$5,018,000 and +3 FTE from the 2014 enacted level.

High Priority Planning Efforts (+$1,208,000 /+3 FTE) – The BLM is requesting an increase of 

$1,218,000 to support high-priority planning efforts, including the initiation of several new plan 

revisions in 2015, 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. Planning efforts will be in support of transmission infrastructure, renewable energy 

development, oil and gas development, and greater sage-grouse conservation.

Enterprise Geospatial System (+3,810,000 / 0 FTE) – The BLM is requesting an increase of 

$3,810,000 to expand the implementation of BLM’s enterprise geospatial system in 2015. This 

expansion will include the aggregation of BLM’s data across administrative units, the 

centralization of those data in an enterprise system that supports all programs and offices, and 

the delivery of data to both desktop and mobile computers across the agency. The enterprise 

geospatial system will support accurate and effective analysis and decision making across 

various priority landscape-scale initiatives, including the Greater Sage-Grouse Plan 

Implementation and Monitoring, Renewable Energy Development, Rapid Ecoregional 

Assessments, Climate Change Adaptation, and Regional Mitigation. The BLM’s enterprise 

geographic information system is integrated with Interior’s growing enterprise GIS capabilities 

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

Program Overview

Resource Management Plans (RMPs) are the foundation of public land management. Planning 

and plan implementation decisions describe desired resource conditions on the ground and 

methods to achieve desired conditions across the more than 247 million acres of BLM-managed 

public lands. The land use planning process encourages collaboration and partnerships that 

help the BLM determine how to manage public lands and associated resources to balance the 

needs of adjacent communities with the needs of the Nation. 
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Plan Implementation

Plan Assessment,

Inventorying & Monitoring

Plan Evaluation, Maintenance,

& Amendment

Plan Revision / Development

The Resource Management Planning Program uses interdisciplinary processes to complete the

management and decision-making cycle shown in the following figure and described further 

below.

BLM Planning Cycle

Land Use Plan Revision and Development – Completion of ongoing RMP revision and 

development is the highest priority of the program. Planning areas without updated RMPs 

present numerous challenges to the BLM. Updated plans:

 Incorporate the best, most current science;

 Contain sustainable decisions that are less vulnerable to legal challenge;

 Are responsive to changes in climate and conditions on the ground; 

 Include desired conditions that are relevant or desired by the public, other governmental 

entities, or industrial users; and

 Advance priorities such as energy development and transmission corridors, adaptation 

to a changing climate, and provide economic opportunities for the public

Delaying completion postpones vital resource management decisions and increases potential 

for litigation in planning areas. As RMP decisions are recorded, the program initiates new 

RMPs in areas where changing demands on public land resources have been identified. 

Sustainable Planning through the National Environmental Policy Act (NEPA) This dynamic 

approach to land use planning cycles through implementation, effectiveness monitoring, and 

assessment of emerging issues such as rapid population growth, and changing resource 

conditions. The planning cycle allows plans to remain relevant and adaptive to changing 

conditions by addressing emerging challenges and changing resource issues as they arise,

which ensures plan longevity and reduces the frequency of costly revisions. The BLM uses the 

NEPA review and analysis process to inform its land use planning and project-level 

implementation decisions throughout the planning cycle. Through the NEPA process, the BLM 

analyzes the potential environmental impacts of a proposed action and a range of alternatives, 

seeks input from stakeholders and the public, and collaborates with partners in Federal, State, 

local, and tribal government to inform its decisions.

Land Use Plan Amendments – Amendments enable the program to address significant new 

information, respond to changing land uses, consider proposals that deviate from the plan, and 

implement new policies that change land use plan decisions. Plan amendments are an 

economical means to reduce the frequency of costly revisions, and they often support priority 

projects, such as those related to renewable energy and national energy infrastructure. 

Critical Factors
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Chapter VII – Management of Lands and Resources Page VII - 139

The BLM addresses a number of critical factors that drive land use planning and decisionmaking processes. These include the following:

Land Health Stressors – Land health stressors such as invasive plant and insect infestations, 

drought, and catastrophic wildfires contribute to the loss of native animal and plant communities

and habitat for threatened and endangered species. Changing conditions necessitate the 

reevaluation of plans. Eco-regional assessments and adaptation strategies for mitigating 

impacts of land health stressors indicate whether land use decisions remain valid or require 

amendment.

Energy Demands – Increased demands for renewable and conventional energy and associated 

infrastructure affect the balance with competing uses such as recreation use, off-highway 

vehicle use, and conserving a broad range of wildlife habitat for future generations.

Expanding Populations & Community Growth – These factors challenge wildland fire 

suppression efforts in the wildland-urban interface, contribute to increased conflicts between 

recreational uses, and increase demands for surface-disturbing uses such as roads, utility 

distribution lines, communication sites, sand, gravel, mineral materials sites, and public 

facilities. Understanding the complex socioeconomic issues in communities adjacent to BLMadministered lands is imperative to effective land management.

Protests/Appeals/Litigation – Public land management conflicts heighten BLM’s attention to risk 

management for challenges over land use decisions. Even litigation not directly associated with 

land use planning frequently affects land use planning decisions, given the broad scope of 

resource issues considered.

Public Involvement and Cooperating Agencies – The BLM involves interested members of the 

public and other governmental agencies—various Federal, State, local, county, and tribal 

entities—to share technical expertise, fulfill requirements for cooperation under various laws, 

and ensure consistent management where BLM-managed lands border or affect those of other 

government agencies. The BLM also participates in cooperating agency and coordination 

training workshops with local government organizations to promote understanding of 

opportunities for local government participation in BLM land use planning and NEPA processes.

Means and Strategies – The BLM uses a number of means and strategies to support land use 

planning and decision-making processes. The means and strategies highlighted below support 

not only land use planning but also provide critical information, resources, and data 

infrastructure used Bureau-wide, and often outside the BLM by Federal, State, tribal and local 

partners. This information is necessary and valued by resource managers and specialists as 

they prepare project analyses for all types of activities. These efforts include the following:

ePlanning – The ePlanning web-based application streamlines the land use planning and NEPA 

processes. It enhances transparency and creates efficiencies through faster and easier public 

access to NEPA documents for review and commenting and simplified comment analysis and 

response. ePlanning is currently used for all new RMP revisions and NEPA in four States 

(Nevada, Alaska, Arizona and Idaho). In 2015 an additional two to four States will begin 

implementing ePlanning for the development of their NEPA documents, with full deployment 

across all States by 2016.

Geospatial Services – The BLM-wide services provided by the Geospatial Program via the 

Geospatial Services Strategic Plan and Enterprise Geographic Information System (EGIS) play 
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Page VII - 140 Chapter VII – Management of Lands and Resources

an integral role in how the Bureau accomplishes work, beginning with a focus on supporting 

specialists in the field. The EGIS supports projects at multiple scales, including components of 

the Landscape Approach to Land Management and Rapid Ecoregional Assessments (REAs), 

as well as the Greater Sage-Grouse Planning Effort and the Solar Energy Programmatic 

EIS. By providing the infrastructure to manage and analyze data at multiple scales, geospatial 

services provide the BLM with the information and tools to better understand the impacts of its 

decisions, and to support more informed decision-making at all levels of the organization.

Socioeconomics – The Socioeconomics Program helps resource managers weigh competing 

interests concerning access to and use of public lands and resources. Social and economic 

conditions are changing across the West and the public is demanding a more collaborative style 

of decision-making with reliable information on the human context and consequences of BLM’s 

programs.

The need to maximize the BLM’s return on investment is essential to achieving its mission, and 

thus measuring that return through the application of socioeconomic methods provides 

information essential for effective resource management. To provide a more complete picture 

of the benefits and costs of the BLM’s resource management decisions, the Socioeconomics 

Program is conducting a series of pilot studies to assess the feasibility and usefulness of 

ecosystem services methods and metrics. These approaches focus on quantifying the 

contributions of healthy ecosystems to human well-being, and the ways in which proposed 

actions may reduce or enhance these benefits. 

Collaboration and Dispute Resolution – The Collaboration and Dispute Resolution Program 

provides guidance and resources in support of lasting solutions to commonly held problems. 

Collaborative approaches can be applied internally and externally throughout decision-making

processes and subsequent challenges. The approaches ultimately enhance relationships and 

outcomes, for example by allowing on-the-ground projects to more easily move forward rather 

than being delayed through administrative or legal challenges. The Collaboration and Dispute 

Resolution Program optimizes investments in the planning process and provides tools and skills 

for future BLM leaders.

NEPA – The BLM’s NEPA program coordinates with the Council on Environmental Quality 

(CEQ), the Interior Office of Environmental Policy and Compliance, and other Federal entities 

on NEPA policy issues across the Federal government and within the Department. The BLM 

NEPA Program also develops Bureau-wide NEPA policy and guidance, coordinates with other 

BLM national programs to develop program-specific guidance, and works with the BLM National 

Training Center to identify and meet NEPA training needs. In addition, the program coordinates 

with BLM State Offices to provide advice and support for NEPA compliance in the field. The 

BLM NEPA Program is developing an internal, web-based BLM Greenhouse Gas & Climate 

Change NEPA Toolkit for use in preparing project-level NEPA documents. The program also 

evaluates NEPA compliance within BLM States. These activities contribute to sound, well 

supported Bureau planning and project decisions, and provide ongoing opportunities to 

strengthen working relationships with the public, stakeholder organizations, and partners in 

Federal, State, local, and tribal government.

2015 Program Performance

Improving Land Use Planning – In 2015, the BLM will continue the process of designing a more 

proactive and nimble approach to planning across landscapes at multiple scales. The revised 
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Chapter VII – Management of Lands and Resources Page VII - 141

process will focus on collaborative work with partners at different scales to produce highly useful 

decisions that readily address the rapidly changing environment and conditions posed by the 

changing climate, rapid growth and development, and other stressors. The BLM will examine 

alternative approaches to avoid future litigation including adaptive management to allow the 

incorporation of new information and the use of multiple-scale decision frameworks and shared 

decision-making across administrative boundaries. 

Land Use Plan Revisions – In 2015, the Resource Management Planning program will continue 

revisions on the 39 plans that are in process. This estimate takes into consideration plans that 

will be completed in the interim. Active plan revisions are evaluated annually to determine 

progress and estimated costs for completion. Approvals to extend project schedules are 

coordinated through the Assistant Director for Renewable Resources and Planning. 

In 2015, the BLM plans to initiate four new RMP revisions. The remaining six Western Oregon 

RMP revisions will be funded by the O&C Resource Management Planning Program. Since 

2001, the BLM has completed 76 plan revisions to improve the quality and effectiveness of its 

resource management. Another 46 planning projects are currently in progress and 28 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 2015, the Resource Management Planning program will continue to support high priority 

amendments, including those associated with renewable energy and transmission line projects. 
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Activity: Resource Protection & Maintenance

Subactivity: Resource Protection & Law Enforcement

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Law Enforcement $000 25,325 25,325 +153 +0 +179 25,657 +332

FTE 137 135 +0 +2 137 +2

Summary of 2015 Program Changes for Law Enforcement: ($000) FTE

Enhance Core Capability +179 +2 

Total +179 +2 

Justification of 2015 Program Changes

The request for the Resource Protection and Law Enforcement Program is $25,657,000 and 

137 FTEs, a program change of +$179,000 and +2 FTE from the 2014 enacted level.

Enhance Core Capability (+$179,000/+2 FTE) - The increase funds two Law Enforcement 

positions enhance BLM’s core capability to perform ongoing high priority work related to visitor 

safety and protection, marijuana eradication, Southwest Border operations, and archaeological 

resource protection.

Program Overview

Program Components – The Resource Protection and Law Enforcement Program supports 

the Bureau’s mission through the enforcement of Federal laws and regulations related to the 

use, management, and development of public lands and resources. The objectives of the

program are to:

 Provide a safe environment for public land users and employees;

 Deter, detect, and investigate illegal activities, and resolve or refer such matters to 

appropriate officials;

 Protect lands and waters from illegal dumping and pollution; and

 Ensure revenues owed to the government for authorized or unauthorized uses are paid.

Resource Protection and Law Enforcement Program resources:

 Manage the law enforcement presence at special events and high-use recreation areas 

in order to support law enforcement needs exceeding the capacity of local field offices;

 Establish interagency agreements, partnerships, and service contracts with numerous 

State and local law enforcement agencies to secure supplemental support in the form of 

dispatch services, patrols of high use recreation areas, and assistance in the eradication 

of marijuana grown on public lands; and

 Utilize technology such as remote cameras, sensors, and tracking devices wherever 

possible to expand the capability to monitor locations of known illegal activities.
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Critical Factors – Critical factors affecting the Resource Protection and Law Enforcement 

Program on public lands include:

 Large-scale marijuana cultivation threatens public and employee safety; while the

associated use of fertilizers, herbicides, and pesticides, the illegal taking of wildlife, and 

the dumping of waste damages ecosystems exploited for illegal cultivation activities. 

 The smuggling of humans and controlled substances on public lands near the Southwest 

Border destroys the natural and cultural resources on these public lands and threatens 

public and employee safety.

 Population increases in urban areas located near public lands have led to corresponding 

increases in off-highway vehicle use, illegal dumping of waste, theft of mineral materials 

and native plants for private landscaping, and the ignition of wildland fires.

 Emergencies and similar unexpected developments frequently require law enforcement 

responses that cannot be planned for or anticipated.

 Partner law enforcement agencies continue to request funding assistance through 

service contracts and support agreements, particularly in counties where public lands 

are heavily impacted by marijuana cultivation activities.

Demands, Trends and Resources – In 2013, the BLM saw a twenty-five percent increase in 

the number of marijuana plants seized on public lands. Due to the scope of the marijuana 

cultivation problem on public lands and the large number of Federal, State, and local agencies 

involved in combatting the issue, it is difficult to 

establish a direct cause for the fluctuations seen in 

marijuana plant seizure statistics. However, several 

factors are believed to affect large-scale marijuana 

cultivation on public lands, including:

 Increasingly effective utilization of multiagency investigation and eradication efforts

targeting illegal activities at all levels of drug 

trafficking organizations. Operation “Crown 

Jewel” is one such effort that successfully 

targeted a drug trafficking organization 

responsible for cultivating marijuana on public 

lands in Northern California in 2013.

 Prosecution of individuals at all levels of multi-State drug trafficking organizations is 

disrupting organizational structures, and reducing cultivation and distribution capabilities.

 Shifting weather patterns are altering the length of the growing season and the 

availability of natural water sources.

 Several State medical marijuana laws provide for the lawful cultivation of marijuana on 

private lands. Quantities of this lawfully cultivated marijuana are known to be sold 

outside the legal trade. This unlawful sale of legally cultivated marijuana, combined with 

the public’s ability to cultivate marijuana lawfully for personal medicinal purposes, may 

be altering levels of market supply and demand, thereby prompting fluctuations in the 

quantity of marijuana being cultivated on public lands.

2015 Program Performance

Marijuana Cultivation on Public Lands – The BLM plans to continue drug enforcement activities 

to include, assigning special agents to investigate large-scale marijuana cultivation on a full time 

Illegal marijuana plants on public lands
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Chapter VII – Management of Lands and Resources Page VII - 145

basis in California and Oregon; and on a part time basis in Utah and Nevada. Additionally, BLM 

rangers assigned to California and Oregon will continue to provide high profile patrol to deter 

and detect cultivation activities, eradicate marijuana cultivation sites, and provide security for 

personnel conducting cultivation site rehabilitation efforts.

The BLM will continue work with the Public 

Lands Drug Coordination Committee, under 

the auspices of the Office of National Drug 

Control Policy, to utilize science-based 

methods to identify environmental impacts of marijuana cultivation on the public lands and 

establish a cost model accounting for hazardous and non-hazardous material, water 

displacement, usage, and pollution impacts, and surface disturbance. These models better 

estimate and track the costs of the environmental impacts of marijuana cultivation. 

Archaeological Resource Protection Act (ARPA)

Enforcement in the Four Corners Region – The BLM will 

continue to patrol and conduct investigations in the Four 

Corners region of the Southwest to deter and detect 

incidents of theft and vandalism of cultural, historical, and 

paleontological resources. The BLM will prosecute 

suspects and provide for the proper curation, storage, and 

disposition of recovered artifacts. The BLM continues to 

support the process of repatriating hundreds of thousands 

of archaeological and Native American artifacts recovered 

through the “‘Cerberus Action”; a highly successful multiyear investigation that targeted individuals suspected of 

looting archaeological sites and Native American graves in 

violation of ARPA and the Native American Graves Protection and Repatriation Act.

Southwest Borderlands – The BLM will continue to patrol and conduct law enforcement 

activities on public lands situated within 100-miles of the Southwest Border in response to the 

heavy resource impacts and public safety concerns associated with illegal human and drug 

smuggling activities. The BLM continues to invest 

heavily in its Reclaim Our Arizona Monuments 

(ROAM) operation. Developed in response to the 

severe impacts occurring on the Bureau’s 

Ironwood Forest and Sonoran Desert National 

Monuments, Operation ROAM combines the skills 

of BLM law enforcement officers with those of

BLM resource specialists in order to improve 

public safety and remedy the resource damage

caused by human and drug smuggling. This 

pairing of skill-sets serves to disrupt/deter

smuggling operations and repair smuggling-related 

environmental damage caused by unauthorized 

roads and trails, large accumulations of trash, and concentrations of human waste.

National Landscape Conservation System (NLCS) – The BLM will continue to patrol and 

conduct law enforcement activities within NLCS areas in order to protect nationally significant 

resources and provide the public the opportunity to enjoy their public lands safely.

Marijuana Plants Seized by BLM on Public Lands

FY 2010 FY 2011 FY 2012 FY 2013

593,832 436,455 156,014 195,417

Native American pottery recovered 

in a BLM undercover investigation.

Illegal road created by smuggling activity 

in the Sonoran Desert National Monument
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Off-Highway Vehicle (OHV) Recreation –

The BLM will continue to dedicate law 

enforcement resources to the patrol of 

high-use OHV areas in order to protect 

sensitive resources and ensure the public 

is provided safe recreational opportunities on public lands. 

Wild Horses and Burros – The BLM will continue to enforce laws and investigate violations 

related to the harassment, unlawful removal, inhumane treatment, unauthorized destruction or 

sale of wild horses and burros.

Resource Damage, Loss and Theft – The BLM will continue to emphasize patrol, enforcement, 

and investigation actions to reduce the theft of public land resources, including mineral 

materials, timber and forest products, as well as improve production accountability and reduce 

theft of oil and gas resources. The BLM will investigate wildland fires to determine the origin and 

cause, identify responsible parties, and seek civil enforcement or criminal prosecution in cases 

involving negligence or arson.

Off-Highway Vehicle Activity on Public Lands

FY 2010 FY 2011 FY 2012 FY2013

OHV

Incidents 8,147 6,427 4,067 5,164

Total Number of Incidents Reported

FY 2010 FY 2011 FY 2012 FY2013

30,935 26,888 23,544 47,644

Theft, Vandalism, and Misuse of Resources Incidents Reported

FY 2010 FY 2011 FY 2012 FY2013

Cultural, Paleontological & Historical Resources 118 72 140 153

Minerals 15 10 21 16

Natural Features & Other Wildland Resources 100 107 106 177

Timber, Forest Products, & Native Plants 202 190 279 456

Wild Horses and Burros 92 86 118 246

Wildland Fire Incidents Reported on Public Lands

No. of Fire Related Incidents FY 2010 FY 2011 FY 2012 FY2013

831 698 1,053 1,341
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Chapter VII – Management of Lands and Resources Page VII - 147

Activity: Resource Protection & Maintenance

Subactivity: Abandoned Mine Lands

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Abandoned Mine Lands $000 16,687 16,687 +75 +0 +2,821 19,583 +2,896

FTE 67 67 +0 +0 67 +0

Notes: - A transfer from the Central Hazardous Materials Fund from the Department of the Interior, 

Office of the Secretary is a collaborative source of funding to address the goals of the 

Abandoned Mine Lands program. The 2014 estimated amount for Central Hazardous Materials 

Fund is $5.402 million, primarily to support work at the Red Devil Mine in Alaska.

- A transfer from the Natural Resource Damage Assessment and Restoration Program from the 

Department of the Interior, Office of the Secretary is a collaborative source of funding to 

address the goals of the Abandoned Mine Lands program. The 2014 estimated amount for 

Natural Resource Damage Assessment and Restoration Program is $0.827 million. The 2015 

estimated new budget authority amount for Resource Development Protection & Management 

is $0.835 million.

- More information on these activities is found in the Department of the Interior, Office of the 

Secretary, Department-wide Program Budget Justifications and Natural Resource Damage 

Assessment and Restoration Program Budget Justifications, respectively.

Summary of 2015 Program Changes for Abandoned Mine Lands: ($000) FTE

Red Devil Mine activities +2,821 +0 

Total +2,821 +0 

Justification of 2015 Program Changes

The 2015 budget request for the Abandoned Mine Lands Program is $19,583,000 and 67 FTE, 

a program change of +$2,821,000, and 0 FTE from the 2014 enacted level. 

Red Devil Mine Remediation (+$2,821,000/0 FTE) – The Red Devil Mine (RDM), located on 

the Kuskokwim River in Southwestern Alaska, is an abandoned cinnabar mine and mercury 

production facility that was active from 1939 thru 1971. In 2009, the BLM initiated a Remedial 

Investigation/Feasibility Study (RI/FS) of the Red Devil Mine site under the Comprehensive 

Environmental Response, Compensation, and Liability Act (CERCLA). As part of the CERCLA 

investigation, the BLM has completed a Remedial Investigation (RI) that shows that mine 

tailings near Red Devil Creek contain high concentrations of mercury, arsenic and antimony and 

that these metals are being released into the soil and water. The $2,821,000 proposed increase

for FY 2015 would be used for developing and implementing a Remedial Design/Remedial 

Action (RD/RA), including a field scale feasibility test of tailings solidification.

Legislative Changes

Reclamation Fee – To provide additional resources for the reclamation of abandoned hardrock 

mines, the 2015 budget proposes a new AML fee on hardrock production. Just as the coal 

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

hardrock mining industry accountable for the remediation of abandoned hardrock mines. The 

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

private lands. The proposed AML fee on the production of hardrock minerals will be charged on 

the volume of material displaced after January 1, 2015. The receipts would be split between 

Federal and non-Federal lands. The Secretary will disperse the share of non-Federal funds to 
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Page VII - 148 Chapter VII – Management of Lands and Resources

each State and Tribe based on need. Each State and Tribe will select its own priority projects 

using established national criteria. The proposed hardrock AML fee and reclamation program 

will operate in parallel with the coal AML reclamation program as part of a larger effort to ensure 

the Nation’s most dangerous abandoned coal and hardrock AML sites are addressed by the 

industries that created the problems.

Program Overview

The Abandoned Mine Lands (AML) program’s primary objective is to eliminate or minimize the 

environmental impacts and physical safety hazards associated with historic hardrock mining 

activity within the National System of Public Lands (NSPL). The AML program addresses mine 

sites that were abandoned prior to January 1, 1981, the effective date of the BLM’s surface 

management regulations (43 CFR Subpart 3809).

The program’s objectives are:

 Protecting public health and safety as well as reducing liabilities by mitigating physical 

safety hazards and/or minimizing environmental impacts on the NSPL;

 Restoring the Nation’s watersheds impacted by abandoned mines on public lands;

 Educating the public about the potential dangers posed by abandoned mines and about 

the actions the BLM takes to address those dangers;

 Implementing a risk-based, watershed approach that uses partnerships to effectively 

leverage funding and facilitate AML project completion;

 Inventorying yet undiscovered abandoned mine features and sites and performing the 

validation, recordation, and evaluations of those characteristics;

 Asserting the BLM’s lead role in the evaluation and remediation of AML sites located on 

or affecting the NSPL;

 Implementing cost avoidance/cost recovery strategies pursuant to CERCLA;

 Restoring abandoned mine land to productive uses including, but not limited to 

recreation, fish and wildlife habitat, renewable energy, as well as the preservation of 

historical/cultural resources;

 Integrating AML goals and priorities into the BLM land-use planning efforts as well as

other BLM functions and programs; and

 Conducting removal and/or remedial actions with a priority of performing post-completion 

project monitoring to ensure the effective remediation of abandoned mine land sites.

Abandoned Mine Land Inventory – The AML program utilizes a database to record and track 

the thousands of AML sites and features within the NSPL. The Abandoned Mine Site Cleanup 

Module (AMSCM), currently contains over 84,000 features (such as physical hazards and 

environmental contaminants) associated with 46,000 sites.

Risk-based Prioritization – In addressing the environmental and physical safety hazards on 

the NSPL, the BLM places the greatest priority on conducting on-the-ground remediation at 

high-priority inventoried and characterized sites and also at newly discovered sites that pose 

higher risks due to population expansion and recreational activities in remote locations. The 

prioritization process ranks sites based on environmental and physical safety hazards and takes 

into account factors including water quality impairments and violations, watershed and other 

environmental impacts, threats to public health or safety, existence of partnerships, cost 

avoidance/cost recovery, continuing/expediting existing on-the-ground projects, location, and 

cost efficiency.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 149

Environmental Response and Remediation – The BLM’s environmental cleanup and

remediation activities are guided by public laws such as CERCLA, the Clean Water Act, and the 

Federal Land Policy and Management Act. The BLM uses its CERCLA authority to remediate 

environmental contamination on public land, prepare and implement emergency response 

contingency plans for oil and chemical spills, and recover costs from Potentially Responsible 

Parties.

Physical Safety Hazards – The majority of sites in the AMSCM database contain physical 

hazards such as open mine shafts and pits, unstable rock, decayed mine support beams, and 

explosive and toxic chemicals. These physical safety hazards pose threats to humans and 

wildlife and are a high priority for the AML program. Temporary mitigation, such as fencing and 

signage, biological and archeological clearances, permanent closure, and installation of 

controlled access barriers are the most common remediation activities. 

Partnerships – Partnerships with other Federal, State, local, and tribal agencies are an 

important component of the AML program. Activities include the development of agreements 

with States for abandoned mine closures, cleanup coordination, and development of joint 

policies and procedures. The BLM also enters into assistance agreements with nongovernmental organizations, for example, with Bat Conservation International (BCI). BCI assists 

the BLM in identifying abandoned mines that provide bat habitat and helps to preserve that 

habitat with bat-friendly closures.

Critical Factors – Critical factors that affect the effectiveness of the AML Program include the 

following:

 The need to support maintenance and monitoring activities at previously remediated 

sites grows as new cleanup efforts are undertaken and completed. The BLM must 

return to these sites to inspect the efficacy of the reclamation/restoration.

 The development of urban areas and related development has brought about growth in 

the public’s access to BLM-managed lands that were once considered remote. This 

increased ease of access by the public has resulted in an increase of exposure to the 

physical and environmental hazards associated with AML sites.

 AML restoration projects can be highly complex in environmental scope and impact. 

Environmental analyses and studies are conducted to determine the extent of 

contamination and to identify restoration and remediation strategies. Typically, a 

multiple-year, phased approach is required to complete restoration/remediation activities 

due to funding limitations and study times.

Other Funding Sources

In addition to the AML program funding, the BLM utilizes, in the appropriate circumstances, 

funding from the Department’s Central Hazardous Materials Fund (CHF) and the Department’s 

Natural Resource Damage Assessment (NRDA) Restoration Fund. The CHF was established 

by Congress to be used for necessary expenses incurred for response actions conducted 

pursuant to the Comprehensive Environmental Response, Compensation, and Liability Act of 

1980 (CERCLA), as amended as well as the regulatory requirements codified in the National Oil 

and Hazardous Substances Pollution Contingency Plan (NCP). The CHF is a competitive 

process among Department Bureaus and functions as a source of no-year funding for CERCLA 
2015 Budget Justifications Bureau of Land Management

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cleanup projects and as a repository for funds recovered from potentially responsible parties 

(PRP) pursuant to sections 107 or 113 of CERCLA (42 U.S.C. 9607,9613).

The purpose of the NRDA process is to restore public natural resources injured or destroyed by 

releases of hazardous substances or oil spills, and to compensate the public, through the 

natural resource damage trustee, for losses of the natural resources that resulted from the 

releases or spills. The costs of the restoration are borne by the parties who are responsible for 

the release or spill. Response actions (CERCLA) and NRDA enforcement may be integrated to 

maximize efficiency in restoring the health, diversity and productivity of BLM-managed land.

2015 Program Performance

In 2015, the AML Program anticipates completing the following elements:

 Water quality: Remediating approximately 2,200 acres to improve water quality;

 Physical Safety Hazards: Closing 1,100 physical safety hazards on AML;

 Inventory: Adding 1,800 new AML features to AMSCM;

 Monitoring and maintenance: Returning to 1,700 remediated sites to check on the 

efficacy of physical safety closures and/or environmental remediation; and

 Complex Contaminated Site Cleanups – Leveraging funding with other Federal 

programs to address cleanups at large, complex sites that pose an imminent risk to the 

public. 
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 151

Activity: Resource Protection and Maintenance

Subactivity: Hazardous Materials Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Hazardous Materials 

Management

$000 15,612 15,612 +106 +0 +0 15,718 +106

FTE 99 96 +0 -1 95 -1

Notes: - A transfer from the Central Hazardous Materials Fund from the Department of the Interior, 

Office of the Secretary is a collaborative source of funding to address the goals of the 

Hazardous Materials Management program. The 2014 estimated amount for Central 

Hazardous Materials Fund is $5.402 million, primarily to support work at the Red Devil Mine in 

Alaska.

- A transfer from the Natural Resource Damage Assessment and Restoration Program from 

the Department of the Interior, Office of the Secretary is a collaborative source of funding to 

address the goals of the Hazardous Materials Management program. The 2014 estimated 

amount for Natural Resource Damage Assessment and Restoration Program is $0.827 

million. The 2015 estimated new budget authority amount for Resource Development 

Protection & Management is $0.835 million.

- More information on these activities is found in the Department of the Interior, Office of the 

Secretary, Department-wide Program Budget Justifications and Natural Resource Damage 

Assessment and Restoration Program Budget Justifications, respectively.

Justification of 2015 Program Changes

The 2015 budget request for the Hazardous Materials Management Program is $15,718,000 

and 95 FTE, a net decrease of 1 FTE.

Program Overview

The Hazardous Materials Management Program ensures BLM compliance with Federal and 

State environmental regulations. The Program also exercises the legal authorities granted to the 

BLM to protect human health and the environment by cleaning up hazardous waste sites. 

Additionally, the program implements Federal initiatives directed at improving environmental 

management and sustainability. Program activities include: 

 Minimizing environmental contamination on public lands;

 Reducing risks associated with environmental hazards;

 Restoring natural and cultural resources adversely impacted by oil discharges and 

hazardous substance releases;

 Correcting environmental compliance issues;

 Utilizing Environmental Management Systems to identify, manage, and accomplish 

operation sustainability objectives and targets, and other significant aspects of BLM 

operations that impact environmental performance; 

 Reducing the generation of wastes or contaminants at the source, thereby reducing the 

level of hazards to public health or the environment; and

 Partnering with the BLM Law Enforcement Program to remove illegally dumped material 

such as trash, hazardous materials, and abandoned vehicles.

The Hazardous Materials Management Program differs from the Abandoned Mine Lands (AML)

Program. While the AML Program focuses on physical and environmental hazards associated 
2015 Budget Justifications Bureau of Land Management

Page VII - 152 Chapter VII – Management of Lands and Resources

with hardrock mines abandoned prior to 1981, the Hazardous Materials Management Program

has a broader focus of environmental hazards on all public lands. Additionally, while the AML 

Program addresses both physical and environmental safety hazards at AML sites, the 

Hazardous Materials Management Program addresses environmental hazards only, but may 

support addressing environmental hazards at high-priority AML sites as well.

Critical Factors – Critical factors that affect the effectiveness of the program include:

 The need to provide maintenance and monitoring activities at previously remediated 

sites increases as new cleanup efforts are undertaken and completed;

 There are currently 178 sites on the Environmental Disposal Liability list which require 

some degree of remediation;

 Urban growth and development is resulting in increased public access to BLM-managed

lands. This trend has not only increased the number of illegal dumps on public lands, but 

has also heightened the need to address contaminated sites rapidly in order to reduce 

public health and safety hazards. Increased real-estate development and property 

transfer activities also require environmental site assessments and a cadre of trained 

and certified BLM environmental professionals; and

 Illegal immigration and smuggling activities along the Arizona, New Mexico and 

California borders with Mexico cause damage to public lands, including national 

monuments and designated wilderness areas. Such damage includes unauthorized 

roads and trails; cut fences; damaged vegetation; contaminated water resources; and 

large accumulations of solid and hazardous waste. 

Means and Strategies – The BLM uses the following strategies to operate the program:

 Developing, implementing, and maintaining emergency response contingency plans (i.e., 

oil and chemical spill);

 Leveraging funding with partners to respond to community needs and concerns;

 Assessing and maintaining BLM facilities to ensure compliance with environmental laws 

and regulations;

 Searching for parties responsible for contamination on public lands to seek their 

participation in remediating the site or recover costs;

 Partnering with other environmental protection-related agencies such as the U.S. Fish 

and Wildlife Service, the Environmental Protection Agency, the U.S. Army Corps of 

Engineers, and the U.S. Forest Service, as well as with other BLM programs, including 

the AML, Law Enforcement, and Recreation Programs; 

 Partnering with State, law enforcement, and volunteer groups to deter and mitigate

damage to public lands along the Southwest border from illegal immigration and 

smuggling activities;

 Using the Abandoned Mine Site and Cleanup Module database to track and prioritize 

sites based on the level of risk to human health and the environment; and

 Using the HMM Special Cleanup Fund (SCF) to address the removal and remediation of 

hazardous substances (solid waste, hazardous waste and hazardous substances). The 

SCF was created as a mechanism to manage larger, high-risk hazardous material sites 

not currently eligible for other funding sources.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 153

Other Funding Sources

In addition to program funding, the BLM utilizes, in the appropriate circumstances, funding from 

the Department’s Natural Resource Damage Assessment and Restoration Fund (NRDAR), and 

the Department’s Central Hazardous Materials Fund (CHF).

The BLM uses the NRDAR fund to identify damage to natural resources; work with the public 

and the polluters to plan restoration efforts; seek payment from the polluters for resource 

restoration costs; and restore or replace resources to pre-contamination conditions. Project 

scoping and start-up funds may come from Interior. Assessment funds are provided through 

Interior or negotiated with polluters. Restoration funds come from settlements with polluters, 

through either negotiations or legal action. Funds from these settlements are then used to 

restore the damaged resources at no expense to the taxpayer. Settlements often include the 

recovery of costs incurred in assessing the damages.

The DOI’s CHF includes appropriated and recovered funds, and supports response actions, 

remedial investigations, feasibility studies, and cleanup at sites contaminated by hazardous 

substances. These sites are prioritized based on human health and ecological risk, regulatory 

factors, and the level of Potentially Responsible Party involvement. Proposals are reviewed and 

prioritized first by BLM State Offices through a yearly nomination process, and then by 

Departmental representatives. The BLM currently manages 26 CHF sites. In 2014, the CHF 

plans to allocate $5.4 million for BLM sites. 

2015 Program Performance

The program will continue to perform the following activities in fiscal year 2015:

 Complex Contaminated Site Cleanups – Leverage funding with other Federal programs to 

address cleanups at hazardous waste sites that pose imminent risk to the public;

 Environmental Compliance – Support, with the Engineering and Safety Programs, the 

performance of Compliance Assessment – Safety, Health, and the Environment (CASHE) 

audits. In 2015, CASHE audits will be performed at twenty-nine organizational units;

 Illegal Dumping Prevention - Continue prevention efforts by targeting cleanups, outreach, 

and monitoring to promote safety and mitigate environmental damage;

 Emergency Response - Respond to and clean up oil spills and hazardous materials 

releases;

 Munitions and Explosives of Concern - Continue collaboration with other Department of the 

Interior Bureaus, as well as the Department of Defense, in the development of a database 

that prioritizes, tracks and monitors munitions and explosives of concern, to ensure visitor 

and employee safety and to ensure the cleanup of military training sites including Formally 

Used Defense Sites. The BLM is working with the Department to develop geo-spatial tools 

to augment the relational database. The program will also support the Lands, Realty, and 

Cadastral Survey Division in documentation of military sites in LR200 and Case Files;

 Asbestos Surveys and Mitigation - Continue to survey BLM buildings for asbestos and 

remediate where necessary. Eighty asbestos inspections are planned for 2015;

 Special Cleanup Fund - Remove or remediate hazardous materials sites in Alaska, 

California, Colorado Idaho, New Mexico, Nevada, Montana, and Oregon. 

 Environmental Management System - Continue implementation of the EMS in all States and 

Centers. Provide for third party audits to ensure compliance with Department standards. 
2015 Budget Justifications Bureau of Land Management

Page VII - 154 Chapter VII – Management of Lands and Resources

The Washington Office has implemented an EMS to improve the Bureau’s sustainability 

performance as tracked on the Office of Management and Budget scorecard;

 Sustainability - Continue participation in the Department Technical Working Group in order 

to meet Department-wide sustainability goals. Also, continue participation in the Bureauwide Technical Working Group to complete the annual Green House Gas (GHG) Inventory. 

In addition, develop operational controls to enhance environmental performance, including 

reducing GHG emissions, energy use, and potable water use. Support State BLM projects 

initiated to meet sustainability targets set for their State operations; and

 Southwest Border Cleanup – Continue to leverage funds and resources with partners to 

conduct remediation and restoration activities along the Southwest border.
Transportation & 

Facilities Maintenance 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 155

Activity: Transportation & Facilities Maintenance

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 2014 Fixed 

Cost Transfers Program Changes

Requested 

Amount

Annual Maint. & Ops $000 38,637 38,637 +310 +0 +500 39,447 +810

FTE 281 273 +0 +4 277 +4

Def. Maint. & Cap. 

Improvements

$000 26,995 26,995 +69 +0 +4,240 31,304 +4,309

FTE 60 62 +0 +0 62 +0

Total, Trans & 

Facilities Maint.

$000 65,632 65,632 +379 +0 +4,740 70,751 +5,119

FTE 341 335 +0 +4 339 +4

The 2015 budget request for Transportation and Facilities Management is $70,751,000 and 339 

FTE, a net increase of $4,740,000 and +4 FTE over the 2014 enacted level. 

Activity Description

The goals of the Transportation and Facilities Maintenance Programs are to protect employee 

and visitor safety, resource values, and public investments, as well as to provide facilities 

management and public lands stewardship. 

To accomplish this, the BLM focuses on:

 Operating clean, safe, and fully functional facilities at recreation sites;

 Performing annual maintenance on all facilities;

 Conducting comprehensive assessments on the physical condition and regulatory 

compliance for all facilities;

 Implementing the Five-Year Deferred Maintenance and Capital Improvement Plans;

 Improving capabilities to manage facilities maintenance through development of an 

automated facility asset management system; and

 Implementing property and asset management planning to accurately inventory and 

describe assets, establish appropriate levels of investment, and adopt public or 

commercial benchmarks and best practices.

Within the Transportation and Facilities Maintenance Activity, two subactivities contribute to the 

stewardship of the BLM facilities:

 Deferred Maintenance and Capital Improvements

 Annual Maintenance and Operational Costs

 

Critical Factors – In the contiguous United States, two-thirds of BLM-managed lands are within 

a one-hour drive of urban areas. As population grows, public use places increasing demands on 

facilities and resources. Additionally, BLM-managed roads have much higher usage rates than 

when those roads were built, increasing costs to maintain roads in a safe condition.
2015 Budget Justifications Bureau of Land Management

Page VII - 156 Chapter VII – Management of Lands and Resources

Means and Strategies – In conducting program work, the BLM adheres to the requirements of 

Executive Order 13327, "Federal Real Property Asset Management." This includes:

 Using public and commercial benchmarks and best practices;

 Employing life-cycle cost-benefit analysis;

 Providing appropriate levels of investment;

 Accurately inventorying and describing all assets; and

 Providing safe, secure, and productive workplaces. 

The BLM uses two industry standard performance measures, the Asset Priority Index and the 

Facilities Condition Index (FCI), for identifying the condition of constructed assets and targeting

assets that can be disposed of or require additional annual maintenance or supplemental 

funding from deferred maintenance. Additional criteria used to prioritize projects are the Scope 

of Benefits, Investment Strategy, and Consequences of Failure to Act. The four criteria put 

emphasis on projects that:

 Repairs the highest priority projects that are in the poorest condition; 

 Are clearly aligned with DOI, and bureau initiatives and strategic goals; 

 A positive return on investment that leverages outside interest and/or reduces operation 

and maintenance liabilities;

 Have unacceptable risk levels if the project is not completed.

Assessment Process

The BLM conducts baseline condition assessments of recreation sites and 

administrative sites, including on-site buildings and structures; Maintenance Level 

3, 4, and 5 roads, bridges, dams, and major trails. The condition assessment 

process identifies deferred maintenance needs and determines the current 

replacement value of constructed assets. Knowing the estimated cost of deferred 

maintenance and the replacement value of recreation and administrative sites 

allows the BLM to use the industry standard FCI as a method of measuring the 

condition and change of condition of facilities. 

The FCI is the ratio of accumulated deferred maintenance to the current 

replacement value (FCI = Deferred Maintenance/Current Replacement Value). It is 

an indicator of the overall condition of capital assets. The general guideline is that 

FCI should be below 0.15 for a facility to be considered in acceptable condition. 

The Facility Asset Management System documents the FCI, and it is a major tool 

used for management decisions on the disposal of assets.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 157

Activity: Transportation & Facilities Maintenance

Subactivity: Annual Maintenance & Operational 

Costs

2013 Actual 2014 Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Annual Maint. 

& Ops

$000 38,637 38,637 +310 +0 +500 39,447 +810

FTE 281 273 +0 +4 277 +4

Note: - The Road Maintenance permanent mandatory appropriation is a collaborative activity of the Annual 

Maintenance & Operations program accounting for less than $100,000 in available receipts from public domain 

lands; for more information on road maintenance, see the Oregon and California Grant Lands and Permanent 

Operating Funds chapters

Summary of Program 2015 Changes for Annual Maint. & Ops: ($000) FTE

General Program Increase +500 +4 

Total +500 +4 

Other Resources Supporting Annual Maint. & Ops:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Quarters Maintenance $000 591 557 600 +43

FTE 0 0 0 +0

Notes:

- Quarters Maintenance amounts are shown as new budget authority derived from rent on BLM employee-occupied quarters; 

Section 320 of the 1985 Interior and Related Appropriations Act (Public Law 98-473) appropriates these funds on a 

permanent basis

- Amount in 2013 and 2014 for Quarters Maintenance shown net of sequestration

- More information on Quarters Maintenance is found in the Permanent Operating Funds chapter

- Actual and estimated obligations, by year for Quarters Maintenance are found in President's Budget Appendix under the 

BLM section for Permanent Operating Funds account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

Justification of 2015 Program Changes

The 2015 budget request for the Annual Maintenance program is $39,447,000 and 277 FTE, a 

program change of +$500,000 and +4 FTE from the 2014 enacted level.

Enhance Core Capability (+$500,000/+4 FTE) – The increase will fund additional preventive 

maintenance on constructed assets supporting administrative, recreational, and infrastructure 

needs, with an emphasis in areas under greatest pressure from community growth.

Program Overview

Program Components – The Annual Maintenance Program provides for visitor and employee 

safety and ensures proper facilities management. Funding provides for emergency, preventive, 

and cyclical maintenance, and baseline facility condition assessments. The program manages 

operations, facility services and landscape upkeep in order to maintain our facilities in good 

condition and minimize new deferred maintenance needs. 
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Page VII - 158 Chapter VII – Management of Lands and Resources

2015 Program Performance

In 2013, the BLM reported 4,745 structures and 802 buildings in the Federal Real Property 

Profile. These structures consist of dams, bridges, electrical and communication systems, trails, 

and roads. In 2015, this appropriation would allow BLM to maintain 89 to 90 percent of facilities 

at an acceptable level.
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 159

Activity: Transportation & Facilities Maintenance

Subactivity: Deferred Maintenance & Capital 

Improvements

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Def. Maint. & Cap. 

Improvements

$000 26,995 26,995 +69 +0 +4,240 31,304 +4,309

FTE 60 62 +0 +0 62 +0

Summary of 2015 Program Changes for Def. Maint. & Cap. Improvements: ($000) FTE

High Priority Projects +4,240 +0 

Total +4,240 +0 

Justification of 2015 Program Changes

The 2015 budget request for the Deferred Maintenance and Capital Improvements Program is 

$31,304,000, a program change of +$4,240,000 and 0 FTE from the 2014 enacted level.

Enhance Core Capability (+$4,240,000/0 FTE) – The requested increase will support 

additional facility repair projects that otherwise would not have been funded. Priorities will be 

identified using the Department’s capital investment guidelines. The projects include 

sustainability upgrades, radio infrastructure, bridge, dam, and facilities repairs on critical assets 

and will slow the growth rate of the BLM’s deferred maintenance backlog, which exceeds $600 

million. The request restores the Deferred Maintenance and Capital Improvements Program to 

roughly 2012 capacity levels, allowing BLM to make better progress in addressing its 

maintenance backlog.

Program Overview

The program:

 Improves the overall condition of BLM facilities;

 Renews aging infrastructure;

 Provides professional engineering services;

 Manages environmental and structural risks of facilities;

 Manages corrective actions identified through Compliance Assessment Safety, Health 

and the Environment (CASHE) Audits;

 Manages corrective actions identified for accessibility provisions;

 Manages corrective actions for improvement of energy savings; and

 Constructs facilities for visitors and employees that comply with Federal requirements. 

The program prioritizes health and safety work and mission critical assets, followed by resource 

protection, energy and sustainability, and code compliance. This includes replacing and 

reconstructing roads, trails, bridges, recreation and administrative facilities, and buildings.
2015 Budget Justifications Bureau of Land Management

Page VII - 160 Chapter VII – Management of Lands and Resources

Energy conservation and sustainability are primary considerations for all new projects. Projects 

incorporate the Federal Five Guiding Principles and follow the BLM’s Sustainable Buildings 

Implementation Plan to reduce the operational costs, improve energy efficiency, and conserve 

water.18 Funding is specifically targeted to assess a buildings sustainability performance and to 

make improvements on the identified deficiencies. The BLM priority is to make every building as 

sustainable and energy efficient as possible. The planning of all the BLM’s Deferred 

Maintenance projects includes consideration of the possible effects Climate Change may have 

on the future operations of our facilities. The sites are assessed to determine if design or site 

adjustments need to be incorporated to account for possible climate change effects.

The BLM Asset Management Plan prioritizes funding to the highest priority assets and plans the 

disposal of unneeded assets to attain a portfolio of constructed assets in good physical and 

functional condition, aligned with current and projected requirements.

In an effort to control costs and save future operational maintenance funding, every project is 

assessed to determine if space can be economized and unneeded facilities can be disposed. 

The BLM is targeting 3 percent of its total budget to dispose of unneeded assets and to align to 

a more efficient portfolio. Every new building project considers alternatives to consolidate 

current operations and space to gain the best efficiencies and monetary savings.

The BLM categorizes deferred maintenance needs identified through condition assessments 

and other inspections into specific projects, which are proposed in the Five-Year Deferred 

Maintenance and Capital Improvement Plan. To manage these projects, the BLM observes the 

following guidelines:

 For projects with estimated costs of $10 million or more, the program schedules one 

year for project planning, one year for design, and no more than two years for 

construction.

 For projects with estimated costs between $2 million and $10 million, the program 

schedules one year for project planning and design, and no more than two years for 

construction.

 For projects with estimated costs below $2 million, the program schedules one year for 

planning and design and one year for construction.

The Five Year Deferred Maintenance and Capital Improvement Plan is updated annually. In 

recent years, the BLM expanded planning for each new project to include the impacts of 

expected life cycle costs on BLM’s total budget. Project submissions include the estimated 

operation expenses, energy cost saving and sustainability actions, and the improvement in 

facility condition as a result of the project.

2015 Program Performance

In 2015, the planned accomplishments in the Deferred Maintenance and Capital Improvements 

Program include 71 deferred maintenance projects and five disposal projects. The deferred 

maintenance projects include corrective actions, sustainability improvements and accessibility 

projects. The planned projects in 2015 will consolidate operations and dispose of unneeded 

 

18 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
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 161

assets in Idaho and Alaska, target mission critical assets in dire need of repair and improve the 

condition of a number of dams and bridges that require emergency maintenance requirements.
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National Landscape 

Conservation System 

 

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Chapter VII – Management of Lands and Resources Page VII - 163

Activity: National Landscape Conservation 

System

Subactivity: National Monuments & National 

Conservation Areas

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 2014 Fixed 

Cost Transfers Program Changes

Requested 

Amount

NMs & NCAs $000 29,909 31,819 +283 +0 +1,898 34,000 +2,181

FTE 244 253 +0 +0 253 +0

Summary of 2015 Program Changes for NMs & NCAs:

($000) FTE

Enhance Core Capability +1,898 +0 

Total +1,898 +0 

Justification of 2015 Program Changes

The 2015 budget request for the National Monuments and National Conservation Areas (NMs

and NCAs) subactivity is $34,000,000 and 253 FTE, a program change of +$1,898,000 and 0 

FTE from the 2014 enacted level.

Enhance Core Capability (+$1,898,000/+0 FTE) – The requested increase strengthens the 

BLM’s management of the 40 NMs and NCAs program and enhances the BLM’s ability to 

conserve, protect, and restore congressionally- and presidentially-designated areas. 

Specifically, funds will enhance monitoring of natural and cultural values, improve the use of 

landscape scale scientific data and increase law enforcement presence. With this increase, the 

BLM will sustain compatible uses on National Monuments and NCAs such as grazing and 

recreation. The budget request enables the program to enhance management, collaborate with 

stakeholders, and improve awareness. This increase will be used to fund priority workloads in 

the field, including at BLM’s newest national monuments: Fort Ord in California, Rio Grande del 

Norte in New Mexico, and San Juan Islands in Washington. 

Program Overview

This program encompasses the BLM’s 19 NMs, 16 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. These 9.2 million acres of public lands are often referred to as the crown jewels of the 

BLM’s National Landscape Conservation System (NLCS). 

The BLM’s program is unique in its management of areas established by Congress or 

Presidential proclamation for conservation purposes because it is managed under the principles 

of multiple-use and sustained yield. Traditional activities such as hunting, livestock grazing and

Native American cultural and religious uses continue throughout many of these landscapes. Oil 

and gas development also continues on some lands where valid rights existed prior to their 

designation. This multiple-use approach honors the essential role these working landscapes

have played in molding the history, culture, and economy of the western U.S. 
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These places span the breadth of BLM-managed public lands and include such diverse lands as 

the 1.2 million-acre Steese NCA, which protects two of Alaska’s most important caribou herds; 

Fort Ord NM, a former military installation near Monterey, California, which contains spectacular 

natural resources and scenery, and was the training site for hundreds of thousands of American 

soldiers; Jupiter Inlet Lighthouse Outstanding Natural Area, on the Atlantic coast of Florida; and 

Colorado’s Canyons of the Ancients NM, which protects the greatest known density of First 

American archeological sites in the United States, including cliff dwellings, villages, kivas, 

shrines, agricultural fields, and rock art, some of which are over 10,000 years old. 

Connecting People to the Land – Over 60 million people now live within 30 miles of public 

lands, and the elevated profile of public lands designated as NMs and NCAs attracts regional, 

national, and international visitors. Consequently, more people recreate on public lands than 

ever. The high level of visitation presents the BLM with the challenge of providing more 

intensive recreation management and law enforcement to ensure visitors have high quality, 

diverse, self-directed recreation opportunities. For example, in Nevada, over 1.5 million people 

visit Red Rock Canyon NCA every year, and the Black Rock Desert High Rock Canyon 

Emigrant Trails NCA hosts the annual Burning Man festival. 

Engaging the Next Generation – The program engages, educates, and employs youths, 

veterans, and military families. At the Grand Staircase-Escalante NM in southern Utah, a native 

plant restoration project is an innovative and highly regarded partnership that effectively 

connects youth to the great outdoors through habitat restoration. BLM worked with the 

monument’s friends group to engage over 100 students from the nearby Kanab High School in 

seed collection and propagation, invasive plant species removal, restoration planting of the 

drought-tolerant native plant seedlings they had grown to restore wildlife habitat. This 

partnership offers hands-on experiences in the natural sciences to students. BLM engages in 

over 50 similar partnerships that work to support the NMs and NCAs.

Advancing Scientific Knowledge – The NMs and NCAs serve as long-term reserves within an 

ecological landscape for vulnerable native plant and animal populations. Scientific data on the 

conditions, trends, and relationships of these resources are critical for managers when 

determining how to adapt management to address land health stressors, such as climate 

change, changing fire regimes, the spread of invasive and exotic species, and human 

population growth. 

In 2013, the NM and NCAs program funded 19 science projects, including one conducted at 

Cascade-Siskiyou NM in Oregon. The study examined habitat use and seasonal movement of 

the poorly understood and imperiled Jenny Creek sucker (an endemic species of fish). The NM 

and NCAs program also piloted the implementation of standardized, defensible, scalable, and 

scientific monitoring protocols in the Grand Staircase-Escalante NM. These types of scientific

studies provide practicable benefits for land management across the National Conservation 

Lands, the BLM, and the entire public land system. 

Creating Economic Opportunities – Communities surrounding the NLCS-designated units 

derive significant economic benefits through tourism. The BLM, in cooperation with local 

communities, supports the creation of recreation and visitor facilities in nearby gateway 

communities rather than building extensive facilities within NLCS units. 

In addition to the revenue generated by tourism, National Conservation Lands also provide 

revenue from energy development as well as traditional uses such as ranching and mineral 
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extraction. Las Cienegas NCA’s relationship with grazing spans generations. The BLM 

continues to work with ranchers and permittees to enhance grazing practices and protect 

natural resources in this spectacular part of Southern Arizona. In Colorado, over 80 percent of 

the Canyons of the Ancients NM are leased for oil and gas development. Canyons of the 

Ancients NM continues to lead the way in development and implementation of best practices to 

balance protection of Native American cultural resources and extraction of gas from one of most 

highly-concentrated carbon dioxide fields in the nation. 

National Monuments & National Conservation Areas 

Funding By BLM State Office

BLM State Office 2013 

Actual

2014 

Enacted

2015 

Request

Alaska 419 450 450 

Arizona 6,098 6,500 6,500 

California 4,757 4,925 4,925 

Colorado 3,095 3,200 3,200 

Eastern States 123 150 150 

Idaho 2,375 2,380 2,380 

Montana/Dakotas 1,460 1,550 1,550 

New Mexico 891 1,042 1,042 

Nevada 1,085 1,275 1,275 

Oregon/Washington 1,477 1,475 1,475 

Utah 5,939 5,950 5,950 

Subtotal, State Allocations 27,719 28,897 28,897 

National Level Program Support† 2,190 2,922 2,922

Fixed Cost Changes (to be allocated) 283 

Enhance Core Capabilities (to be allocated)‡ 1,898 

Total 29,909 31,819 34,000 

Note: 2013 and 2014 State Office amounts include funds allocated to Units for high priority 

projects

†Includes funds supporting Washington Office, National Operations Center, National Training 

Center, and Bureau-Wide Administrative Support

‡Funds supporting high priority project needs as determined by an annual work plan process

2015 Program Performance

The program has instituted a new bureau-wide performance measure in 2014: “Percent of 

designated Monuments and NCAs inventoried for the resources, objects, and values for which 

they were designated.” The BLM will begin data collection in FY2014 focused on collecting 

baseline data for all NMs and NCAs. The measure will be replaced as enough units move 

through the sequence of inventory, condition assessment, management actions, and 

conservation, protection, and restoration. 

The program will focus on managing NMs and NCAs as an integral part of the BLM’s multipleuse and sustained yield mission, including by highlighting the accomplishments of BLM 

programs such as rangeland resources management, natural gas development, and recreation. 

Key accomplishments planned in 2015 include:

 Implementing completed land use plans for NMs and NCAs designated in the 

Omnibus Public Land Management Act of 2009, as required by law.

 Developing science plans for NMs and NCAs to provide a foundation for decisionmaking.
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 Using NMs 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.

 Eradicating and controlling invasive, noxious plants, conducting vegetation 

treatments, removing decommissioned roads, restoring healthy ecosystem function, 

and promoting habitat connectivity and landscape-scale ecological sustainability.

 Providing resource protection and public safety.

 Engaging communities to provide sustainable recreational experiences to visitors,

which benefits local economies.

 Fostering partnerships, including with Friends groups, for NMs and NCAs.

 Expanding volunteer opportunities to permit more important contributions that 

volunteers make to NMs and NCAs.

 Providing highly regarded education and interpretation to the public.

 Recruiting and retaining youth for employment in conservation.
Challenge Cost Share 

 

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Activity: Challenge Cost Share

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Challenge Cost Share $000 2,413 2,413 +3 +0 +1,163 3,579 +1,166

FTE 1 1 +0 +1 2 +1

Summary of 2015 Program Changes for Challenge Cost Share: ($000) FTE

Enhance Core Capabilities +1,163 +1 

Total +1,163 +1 

Other Resources Supporting Challenge Cost Share:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Partner Match (cash or in-kind) $000 6,018 6,018 8,926 +2,908

Notes:

- Challenge Cost Share Partner Match (cash or in-kind) amounts for 2014 and 2015 are estimates based on 2013 actual 

contributions

- Challenge Cost Share Partner Match are resources outside of Federal control.

Justification of 2015 Program Changes

The 2015 budget request for the Challenge Cost Share Program is $3,579,000 and 3 FTE, a 

program change of +$1,163,000 and +2 FTE from the 2014 enacted level.

Enhance Core Capability (+$1,163,000/+1 FTE) - The additional $1,163,000 general program 

increase in Challenge Cost Share funds will be a boon to the American public, as the BLM will 

use those funds as seed money to generate an estimated additional $2.9 million in partner 

matching funds. The additional funding will be spent on a variety of activities and projects 

including: priority habitat restoration projects benefiting critical species across more than twelve 

State Offices; inventory and monitoring activities that support BLM’s wildlife and cultural 

programs; projects in support of BLM’s recreation mission; environmental education activities 

and public outreach projects pertaining to off-road vehicles. Many of these activities will occur 

in NLCS units and many will engage and support BLM’s youth programs to encourage 

interaction and understanding of the natural environment, while creating opportunities to explore 

and enjoy America’s Great Outdoors.

Program Overview

The Challenge Cost Share (CCS) Program allows the BLM to partner with local organizations to 

meet Administration priorities for on-the-ground habitat, recreation and cultural resource work. 

The BLM leverages CCS funds with partners’ monies or other in-kind contributions, at a 

minimum 1:1 rate. When appropriate, CCS funds are focused in high priority areas and aligned 

with other BLM funding. Some very successful projects have recently combined upwards of $6 

in partner contributions for every $1 of BLM CCS funds. 
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BLM partners represent a broad spectrum of organizations that want to conserve public lands, 

enrich the public’s outdoor experience, and invite rural and urban residents to explore America’s 

Great Outdoors. These organizations care about the health of local communities, recreation and 

tourism, cultural heritage, forestry, oil and gas drilling, minerals and mining, livestock grazing, 

scientific research, wildlife, interpretation, and environmental education. BLM partners include 

Federal, State and municipal agencies, recreation and social groups, non-profit organizations;

school districts, colleges, and universities, special interest groups, national advocacy groups;

industry, private corporations and local businesses; and the Girl Scouts of the USA and the Boy 

Scouts of America.

Critical Factors – Partnerships, through programs such as CCS, are vital to the Bureau’s 

success. The BLM’s commitment to and involvement with local communities is the key to reach 

stakeholders and youth. In turn, these successful relationships are an effective way to complete 

the following strategic work: 

 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 accomplish more on-the-ground work.

Means and Strategies – Individual CCS projects are prioritized and selected at the local and 

State level by an interdisciplinary team of BLM State and field office personnel. That prioritized 

list is then forwarded to the National CCS Team. The National CCS Team evaluates the merit 

of projects and approves them, in coordination with BLM State office program leads. Project 

selection criteria include the project’s ability to:

 Focus funding in priority areas such a National Landscape Conservation System (NLCS) 

units and Healthy Landscape focal areas;

 Provide multiple program benefits;

 Restore or sustain BLM land health by accomplishing on-the-ground work that focuses 

on important habitats;

 Protect cultural and heritage resources and meet public demand for diverse recreational 

opportunities; and

 Sustain multiple valued and beneficial partnerships.

2015 Program Performance

The BLM has identified national priorities and required state and field offices to submit projects 

that meet these criteria. The National CCS Team will select the projects using the process 

described above.

By leveraging funding from a variety of stakeholders, the CCS Program contributes to multiple 

program subactivities with over 120 program elements. Its accomplishments encompass a wide 

variety of work activities, which assess, treat, and monitor BLM lands. 
Workforce & 

Organizational Support 

 

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Activity: Workforce & Organizational Support

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Administrative Support $000 47,127 47,127 +350 +0 +454 47,931 +804

FTE 312 304 +0 +0 304 +0

Bureauwide Fixed Costs

$000 87,773 92,901

-

1,938 +0 +47 91,010 -1,891

FTE 0 0 +0 +0 0 +0

IT Management $000 25,761 25,696 +145 +0 +0 25,841 +145

FTE 130 130 +0 +0 130 +0

Total, Workforce & 

Organizational Support $000 160,661 165,724

-

1,443 +0 +501 164,782 -942

FTE 442 434 +0 +0 434 +0

The 2015 budget request for Workforce and Organizational Support is $164,782,000 and 434

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 404 of the 2014 

Consolidated Appropriations Act (P.L. 113-76), includes the following requirement for disclosure 

of overhead charges, deductions, reserves and holdbacks:

SEC. 404. The amount and basis of estimated overhead charges, deductions, 

reserves or holdbacks, including working capital fund and cost pool charges, 

from programs, projects, activities, and subactivities to support government-wide, 

departmental, agency, or bureau administrative functions or headquarters, 

regional, or central operations 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 Committee on Appropriations for approval.
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The BLM funds the costs described in Section 404 through a combination of direct 

appropriations in this activity (Workforce and Organizational Support) and program 

assessments. For 2015, the BLM estimates these requirements will be approximately $285.2

million, a $600,000 decrease from the estimate for 2014, as shown in the table below.

Administrative Costs (Section 404)†

$000 2013 

Actual

2014 

Enacted

Requested 

Amount

Change 

from 

2014

Administrative Support 47,127 47,127 47,931 +804

Bureauwide Fixed Costs 87,773 92,901 91,010 -1,891

IT Management 25,761 25,696 25,841 +145

Subtotal, Direct Appropriations 160,661 165,724 164,782 -942

National Assessments 35,800 35,096 35,437 +341

State/Regional Assessments 85,000 85,000 85,000 +0

Subtotal, Assessments 120,800 120,096 120,437 +341

Total, Administrative Costs (Sec. 404) 281,461 285,820 285,219 -601

†Shown as estimated amounts for fiscal years 2014 and 2015

Direct Appropriations – In 2015, the BLM requests $164.8 million in direct appropriations for 

activities described in Section 404. Appropriations are requested in three subactivities: 

Administrative Support, Bureauwide Fixed Costs and Information Technology Management. 

Direct appropriations provide approximately 58 percent of the funding necessary to maintain 

these functions.

Program Assessments – In addition to direct appropriations, and in order to provide the level of 

funding needed to support operations, the BLM assesses its programs at both the national and 

state-office levels according to a prorated share of prior year full-time equivalent (FTE) usage. 

These assessments provide about 42 percent of the BLM’s total Section 404 costs. The 

estimated program assessments in 2015 are $120.4 million. These program assessments are 

conducted with the oversight and administrative management of the BLM Director, Executive 

Leadership Team, and Information Technology Investment Board. 

 National Assessments – The BLM assesses programs at the National level for centrally 

funded initiatives 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 are prorated to 

program areas based upon historical costs and FTE usage. These assessments include 

approximately $1.0 million for the Bureau’s Priority Fund, which is used to assist field 

offices and programs with high-priority, unplanned or unfunded needs which arise during 

the fiscal year.

 State (Regional) Assessments – 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, 
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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 2013 through 2015.
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Activity: Workforce & Organizational Support

Subactivity: Administrative Support

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Administrative Support $000 47,127 47,127 +350 +0 +454 47,931 +804

FTE 312 304 +0 +0 304 +0

Summary of 2015 Program Changes for Administrative Support: ($000) FTE

Enhance Core Capabilities +454 +0 

Total +454 +0 

Justification of 2015 Program Changes

The 2015 budget request for Administrative Support is $47,931,000 and 304 FTE, a program 

change of +$454,000 and 0 FTE from the 2014 enacted level.

Enhance Core Capability (+$454,000/ 0 FTE) – The increased funding supports increased 

costs associated with operating the BLM’s management and support infrastructure, continuous 

improvements to internal controls and compliance to support mission assurance and 

accountability, and supports human capital planning and workforce planning.

Legislative Change

National BLM Foundation – The BLM proposes to establish a congressionally chartered 

foundation. Established as a charitable, nonprofit organization, the foundation would benefit the 

public by protecting and restoring natural, cultural, historic, and recreational resources for future 

generations. Several examples illustrate the benefits to Federal programs from this type of 

foundation, including the National Park Foundation, the National Fish and Wildlife Foundation, 

and the National Forest Foundation. Historically, the BLM has been successful at initiating and 

maintaining partnerships locally to achieve land restoration objectives. For example, with the 

Restore New Mexico initiative, the BLM worked with partners to establish a healthy mosaic of 

native grasslands and woodlands that have provided open prairies and mountainous 

landscapes for antelope, deer, elk, and bighorn sheep. Similarly, in Utah, the BLM has a vast 

array of partners supporting visitor centers, restoring habitat and native plants, and offering 

environmental education opportunities to the public. However, as resource issues broaden and 

diversify across larger landscapes and including a wider set of constituents, the BLM seeks this 

approach to reach those communities and engage with the public better. Establishing the 

foundation will allow the BLM to broaden its partnership capabilities to seek donations and raise 

monetary or in-kind contributions on a national scale. 

Program Overview

The program supports 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, and Service First.
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Means and Strategies – The Administrative Support Program funds services related to 

management and administrative support that cannot be directly tied to a specific program 

output. The successful management of these services is vital to the effective use of human and 

capital resources within the BLM. The Administrative Support Program uses a combination of 

business process engineering and workforce planning strategies as the means to improve and 

accomplish customer service and effectiveness across the BLM. Each year, the BLM conducts

management and program evaluations to identify and acknowledge best practices, procedures 

and processes. The BLM also measures the satisfaction of external customers, partners, 

stakeholders, and employees to adhere to the requirements of Executive Order 12862 and the 

Government Performance and Results Act, and regularly evaluates performance measurements 

and analysis to ensure these measurements are in alignment with DOI’s strategic plan.

Other Funding Sources – Many of the programs funded by the Administrative Support 

Program contribute to multiple BLM activities (i.e., Equal Employment Opportunity and Service 

First) and are also financially supported by many Department and Bureau-wide subactivities that 

benefit from this work.

2015 Program Performance

In 2015, the BLM will emphasize and assure:

 Adequate internal controls on BLM financial systems;

 Compliance with accounting standards;

 Accountability for undelivered order funds;

 Compliance with fiscal laws and regulations;

 Proper accounting, management, and maintenance of capital assets;

 Complete quarterly financial statements, including intra-governmental eliminations;

 Improved electronic data processing; and

 Financial accountability at all levels of the organization.

The Administrative Support Program will focus on the following operations of the Bureau:

Financial Management – The BLM will continue to operate National Centers and related 

facilities that offer support services to a variety of critical programs that include fire support, 

uniforms, property, accounting, contracting, acquisition, space leasing, treasury investments, 

and the development and operation of financial, procurement, and property systems.

Improved Financial Performance – The BLM will continue to maintain an unqualified (clean) 

financial audit opinion, and make available to all employees timely and accurate financial 

information through the Financial and Business Management System (FBMS). The ability to link 

budget and performance through cost management, as well as access to financial data in real 

time, has fostered a Bureau-wide ethic of fiscal accountability. 

Performance Improvement – The BLM will continue to use the cost management information 

systems along with other management information tools to evaluate program effectiveness and 

help allocate budgetary resources across the organization to maximize performance and cost 

effectiveness.

Disposal of Personal Property – The BLM will continue to dispose of excess personal property 

to other Federal and State agencies, to donate computers and other electronics to local schools 
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when possible, and to sell working capital fund vehicles and heavy equipment on EBay’s 

auction web site. These activities have reduced overhead costs, increased visibility, improved 

revenue, and created fast sales and the transfer of monies to the BLM. Proceeds from the sale 

of vehicles are returned to the working capital fund to augment the cost of replacement vehicles.

Workforce Planning – In 2015, the BLM will continue to refine its workforce planning process to 

ensure the agency has employees with appropriate skills in the right places at the right times. 

As a result of workforce planning, the BLM has placed, and will continue to place, more 

emphasis on entry-level recruiting, career development, and diversification. For example, the 

Bureau is using the Presidential Management Fellows Program, Student Career Experience 

Program, Student Temporary Employment Program, and other human capital management 

programs as viable tools for recruiting and filling entry-level positions and for meeting its future 

skill requirements. In 2011, the BLM placed greater emphasis on hiring veterans and veterans 

with disabilities through the following special hiring authorities and appointments: Veterans 

Recruitment Appointment, Veterans Employment Opportunity Act of 1998, 30 Percent or More 

Disabled Veteran, Disabled Veterans Enrolled in a VA Training Program, Schedule A Appointing 

Authority, and Veterans Preference. The BLM will continue emphasizing hiring veterans and 

veterans with disabilities in 2015.

Service First – The BLM will use the permanent Service First authority across the entire 

Department of the Interior and U.S. Forest Service (USFS) in 2015. The Bureau will work to 

improve customer service and seek additional cost savings and productivity improvements. The 

BLM currently shares 61 sites with other agencies and will continue to expand on these. For 

more information on Service First, please see the Crosscutting Programs chapter.
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Activity: Workforce & Organizational Support

Subactivity: Bureauwide Fixed Costs

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Bureauwide Fixed Costs

$000 87,773 92,901

-

1,938 +0 +47 91,010 -1,891

FTE 0 0 +0 +0 0 +0

Summary of 2015 Program Changes for Bureauwide Fixed Costs: ($000) FTE

WCF Indirect Cost Payments +47 +0 

Total +47 +0 

Justification of 2015 Program Changes

The 2015 budget request for Bureauwide Fixed Costs is $91,010,000 and 0 FTE, a program 

change of +$47,000 from the 2014 enacted level.

WCF Indirect Cost Payments (+47,000/0 FTE) – This proposed increase will pay the 

Department’s Office of Indirect Cost Services for its review of BLM’s indirect cost rate proposals. 

The request represents a base transfer of $23,400 from the Departmental Operations 

appropriation and an increase $23,600 based on increased workload and backlog resolution.

Program Overview

Bureauwide Fixed Costs funds the following:

 The Departmental Working Capital Fund (WCF) – These fixed costs are billed by the 

Department of Interior’s (DOI) Office of the Secretary and the DOI’s National Business 

Center, and categorized as two separate bills:

1. Central Bill – Mandatory services provided by the DOI Office of the Secretary 

and the DOI National Business Center.

2. Direct Bill – Primarily a fee for service bill. These are services provided under 

reimbursable agreements between the BLM and DOI.

 The Space Management program portion of the Bureauwide Fixed Costs focuses 

primarily on general purpose and warehouse space acquired through direct lease and 

General Services Administration (GSA)-provided space in federally owned or leased 

buildings.

 The Land Mobile Radio (LMR) program provides two-way radio voice services for the 

BLM. The primary customers are wildland fire, law enforcement, and resources staff. 

The radio systems are used jointly with other Federal, state, and local agencies in 

support of wildland fire and law enforcement operations. The LMR program is working 

to join the radio network nationally among partners, cooperators, and other stakeholders 

to build a homogenous and holistic architecture.

 The Telecommunications program manages communication services critical to the dayto-day operations of the BLM. The program manages fixed-line office phones, fax, 

mobile voice, data devices, and service contracts, video conferencing, and internal and 

external data networks service contracts, including network security. The program's 
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management of the radio network supports public safety, connecting firefighters and law 

enforcement through agency and inter-agency managed microwave radio links, base 

stations, and radios, including contracts for satellite radios service. Communications 

(fax, print, voice, and data) during Continuity of Operations relies and these established 

efforts of the Telecommunications program. Costs for these services are funded from 

individual State/National Centers and the DOI Working Capital Fund.

 The Federal Personnel Payroll System (FPPS) monitors the costs of using and 

maintaining BLM’s personnel management systems.

 The Mail and Postal Costs component of this program assesses and monitors BLM’s 

mail and postal service utilization, which includes base metered postage machines, next 

day postage, and other express mail services.

 The Unemployment Insurance Costs are based upon historical data, paid through the 

Department's Federal Employees Compensation Account of the Unemployment Trust 

Fund to the Department of Labor, pursuant to the Omnibus Budget Reconciliation Act of 

1980.

 The Workers Compensation amount requested for 2015 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.

Space Rental - GSA 21,607 22,369 28,320

Space Rental - Non-GSA 34,306 33,773 31,536

Subtotal, Rental 55,913 56,142 59,856

BLM Radio Support 767 837 837

Workers' Compensation 9,026 9,110 8,405

Unemployment Compensation 7,120 7,256 7,369

DOI Working Capital Fund Centralized Bill 26,563 24,706 24,376

DOI Working Capital Fund Direct Bill 12,608 13,247 13,532

Other Fixed Costs 4,362 8,428 3,537

Total 116,358 119,726 117,912

Fixed Costs Funded Through Program Assessments -28,585 -26,825 -26,902

Total, Bureauwide Fixed Costs 87,773 92,901 91,010

†Shown as estimated amounts for fiscal years 2014 and 2015

2015 

Request

Bureauwide Fixed Costs†

$000 2013 

Actual

2014 

Enacted
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o Pursue consolidation opportunities with other agencies in common asset types, 

such as data centers, office space, and warehouses.

 Department of the Interior Memorandum – Space and Facilities Management dated 

August 2, 2011, emphasized that real property (owned and leased) is a key aspect of the 

overall cost cutting campaign. The utilization standard for general-purpose office space 

has now been set to 180 square feet per person. Opportunities for teleworking in order 

to reduce overall real property costs are encouraged. 

2015 Program Performance

In 2015, the BLM will continue to manage the National Land Radio program, 

telecommunications, the Federal Personnel Payroll System, unemployment costs, mail and 

postal costs, the Employee Compensation Fund, and office space leasing, which is the largest 

of BLM’s fixed costs. 

The following long-term goals have been established as part of the BLM’s Space Management 

program:

 Evaluate and reduce GSA provided space whenever such a reduction can be 

accomplished economically.

 Evaluate the potential of consolidating offices (e.g. two field offices in different states, 

field offices with state offices, and state offices with centers).

 Maximize the use of existing owned buildings, warehouses, and wareyards whenever 

possible instead of occupying leased space.

 Utilize extensions of existing leases when appropriate in order to allow time to prioritize 

long-term leasing actions.

 Whenever financially beneficial, reduce the size and change the layout of leased 

warehouses.

 Implement the use of high-density, storage systems for office and warehouse areas.

 Promote telework wherever a corresponding reduction in leased office space would 

occur.
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Activity: Workforce & Organizational Support

Subactivity: Information Technology Management

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

IT Management $000 25,761 25,696 +145 +0 +0 25,841 +145

FTE 130 130 +0 +0 130 +0

Justification of 2015 Program Changes

The 2015 budget request for the Information Technology Management Program is $25,841,000 

and 130 FTE.

Program Overview

The Information Technology Management program is responsible for managing all aspects of 

information technology (IT) throughout the BLM. These responsibilities include:

 Bureauwide Policy – Planning, directing, coordinating, and evaluating IT programs, 

policies and procedures and providing guidance for the effective use of IT resources in 

support of BLM programs and services in accordance with the Clinger-Cohen Act of 

1996 and the Government Performance and Results Act of 1993;

 Capital Planning and Investment Control (CPIC) – The Clinger-Cohen Act of 1996 and 

the E-Government Act of 2002 sought to improve mission performance by requiring 

agencies to use a disciplined CPIC process to acquire, use, maintain and dispose of the 

BLM’s IT portfolio. CPIC is a dynamic process in which IT investments are selected and 

then continually monitored and evaluated to ensure each chosen investment is well 

managed, cost effective, and supports the mission and strategic goals of BLM. CPIC 

ensures that all IT investments align with BLM's mission and support business needs 

while minimizing risks and maximizing returns throughout the investment’s life cycle.

 Information Resources Management – Providing management and oversight over 

implementation of the Freedom of Information Act, Open Government Initiative, Section 

508 of the American Disabilities Act, IT Acquisition, IT Configuration Management, 

Indian Trust and the Records Act; ensuring continued compliance with applicable laws, 

regulations and guidance; ensuring that manual and electronic records are accessible, 

properly maintained, documented, scheduled and disposed of; and, ensuring that 

automated systems are documented and scheduled and that records preservation 

orders are tracked and monitored to so that records are properly secured, accessible 

and retrievable to respond to court orders and requesters;

 IT Transformation Implementation – The BLM continues to pursue streamlining efforts to 

improve IT service delivery and reduce the overall costs for IT support across the BLM. 

In 2015, the BLM will have its IT support and services delivered in a consistent manner 

with a focus on customer needs. 

 Data Management and Administration – Ensuring that the information BLM uses in 

decision making is accurate, timely, useful, and free of bias;
2015 Budget Justifications Bureau of Land Management

Page VII - 192 Chapter VII – Management of Lands and Resources

 National Applications – Managing national applications and systems throughout their life 

cycles of investment and ensuring successful service delivery through all phases—

concept, design, construction, data management, operation, support and maintenance—

in order to meet business needs while ensuring system data integrity;

 Infrastructure – Providing compliant and effective technology platforms and 

environments; and

 Security – Developing security-related policies, procedures, and guidance; providing 

technical assistance for securing major applications and general support systems; 

overseeing security compliance efforts; maintaining an inventory of systems and their 

security Assessment and Authorization status; coordinating IT Security Education and 

Awareness efforts; and developing IT security performance measures and reports.

Other Funding Sources

Every BLM program contributes some funding for IT activities. Major investments in the BLM IT 

portfolio are funded by the programs supported by those investments. IT infrastructure 

investments are funded proportionately by all programs.

2015 Program Performance

The BLM has achieved success in lowering the overall costs of IT by implementing dynamic 

approaches to respond to national priorities. In 2015, the BLM continues to improve upon the 

methodologies used to provide the resources necessary to most effectively and efficiently 

manage more than 247 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 2015:

 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
Mining Law 

Administration 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 193

Activity: Mining Law Administration

2013 

Actual

2014 

Enacte

d

2015 President's Budget Chang

e from 

2014

Fixe

d 

Cost

Transfer

s

Program 

Changes

Requeste

d Amount

Mining Law 

Administration

$000 37,677 39,696 +0 +0 +0 39,696 +0

Offse

t -37,677 -39,696 +0 +0 +0 -39,696 +0

FTE 328 317 +0 -2 315 -2

Justification of 2015 Program Changes

The 2015 budget request for Mining Law Administration is $39,696,000 and 315 FTE, a

program change of 2 FTE from the 2014 enacted level. The budget assumes the program’s 

operating cost will be fully offset by revenue from mining claim maintenance and location fees. 

Legislative Changes

The budget includes a legislative proposal to reform hardrock mining and provide a better return 

to the taxpayer from hardrock production on Federal lands. 

This proposal institutes a leasing process under the Mineral Leasing Act of 1920 (MLA) for 

certain minerals (gold, silver, lead, zinc, copper, uranium, and molybdenum) currently covered 

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

will be governed by the new leasing process and subject to annual rental payments and a 

royalty of not less than five percent of gross proceeds. Half of the receipts will be distributed to 

the State where the lease is located and half would be deposited to the Treasury’s General 

Fund. 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 Department of the Interior Office of Natural Resources Revenue will collect, account 

for, and disburse the receipts.

The proposal also increases annual maintenance fees and eliminates the fee exemption for 

miners holding 10 or fewer mining claims. These changes discourage speculators from holding 

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

minerals could voluntarily convert their claims to leases. The legislation would provide a 

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

Program Overview

The BLM Mining Law Administration Program (Locatable Minerals) is responsible for providing 

access to mineral resources in an environmentally responsible manner. To accomplish this, the 

BLM administers mining claims and collects location and annual maintenance fees. The BLM 

also processes notices for exploration and plans of operations for exploration and production. 

Reclamation plans are evaluated and bonds are posted to ensure adequate financial 

guarantees. The BLM also inspects notices and plans of operation to ensure compliance with 

terms and conditions of notices and plans of operations. The BLM takes enforcement actions 

when the terms and conditions of operations have been violated. Finally, the BLM is 
2015 Budget Justifications Bureau of Land Management

Page VII - 194 Chapter VII – Management of Lands and Resources

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 BLM is required by statute to adjust 

these fees every five years, or more frequently if determined reasonable, to reflect changes in 

the Consumer Price Index published by the Bureau of Labor Statistics. The maintenance fee is 

currently $140 per claim and the location fee is currently $34 per claim. These fees were last 

adjusted in 2009 and are scheduled for adjustment in 2014. 

Critical Factors – During 2013, the major commodity markets (gold, copper, uranium, silver, 

and platinum) experienced significant market declines. Sustained periods of market decline 

typically affect the number of mining claims filed and maintained on public lands. The number 

of active mining claims held at the end of FY 2013 declined 6.5%. New mining claims filed 

during FY 2013 declined by 32%. Despite the market decline, gold futures show a modest 

increase over the next two years; this may indicate that the industry expects commodity prices 

to stabilize. 

Monthly Average Price per Ounce of Gold

$0

$500

$1,000

$1,500

$2,000

Nov-03 Nov-04 Nov-05 Nov-06 Nov-07 Nov-08 Nov-09 Nov-10 Nov-11 Nov-12 Nov-13
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 195

Relationship between Mining Claims and Revenue19

Mining claim location for technology metals remains stable despite declines in other 

commodities. Although no current “rush” exists, the BLM is experiencing continued interest 

from the mining industry to locate and discover domestic supplies of these minerals. Technology 

minerals form the building blocks of technology-dependent industries, such as electronics, 

automotive and energy. These minerals include but are not limited to, rare earths, lithium, 

indium, germanium, vanadium, graphite and cobalt.

Increased interest in uranium exploration began in 2003 and carried through to 2008. Uranium 

prices experienced record highs in 2007. Likewise, mining claim locations for uranium oxide 

(yellow cake) increased during that time. Uranium Oxide is used for the production of electrical 

energy in nuclear power plants in the United States and overseas. Processed uranium is used 

for the production of approximately 20 percent of the electrical energy in nuclear power plants in 

the United States. Most of the land available or amenable for mining claims for uranium has

been located and is now being evaluated for possible production. Additionally, subdued 

commodity prices have led to an apparent decrease in mining claim location for uranium. 

Mining claims found to have no mineral values of interest typically lapse due to nonpayment of 

maintenance fees by the claimant or are sold. Lapse claims hold no rights and may be relocated 

by another claimant. During a market downturn, mining claimants will likely evaluate and release 

any unfavorable holdings. In addition, the number of new mining claim locations may decrease 

due to the lack of exploration investment. The degree to which mining claim revenue will be 

impacted will depend on the length and the severity of the declining markets. Mining claim 

location and maintenance trends will likely continue to follow market trends. 

 

19 The above chart is based upon the most recent data. The new and total mining claims illustrate the numbers as reported in the 

Public Land Statistics (PLS) for the indicated fiscal years. The 2013 claim data was derived from the draft PLS data and is subject 

to change. The revenue estimates for 2013 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. Data for 2014 and 2015 are projections.

$0

$10

$20

$30

$40

$50

$60

$70

$80

0

50

100

150

200

250

300

350

400

450

2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

Revenues - Millions

Mining Claims - Thousands

New Mining Claims

Total Mining Claims

Revenue in Millions ($)
2015 Budget Justifications Bureau of Land Management

Page VII - 196 Chapter VII – Management of Lands and Resources

Other Funding Sources – The Mining Law Administration program is primarily funded through 

this subactivity, in which the appropriation is offset by maintenance and location fees. Since 

1994, Congress, through its appropriations acts, has tied Mining Law Administration funding to 

revenue collected by the program. The funds made available by congress are reduced by 

amounts collected by the Bureau and credited to this appropriation.

In addition to this source of funding, 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 charges a processing fee, on a case-by-case basis, for proposed mining plans of 

operations requiring an environmental impact statement. A processing fee is also applicable to 

validity 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.

2015 Program Performance

In 2015, the BLM will:

 Provide access to locatable mineral resources while ensuring environmental protection.

 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

 Coordinate with other Federal agencies with primary responsibility for approval of 

uranium milling activities

 Continue working with State agencies to streamline multiple agency processes and 

minimize the time necessary to authorize exploration and development activities. 

Inspection workload is expected to remain steady in 2015. In 2013, the number of unique 

inspections completed increased from 1,338 unique inspections in 2012 to 1,393 inspections.

Similar output is expected in 2014 and 2015. 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 14 months in 2012 to 26 

months in 2013. The rolling 3-year average for average processing time is 21 months. The BLM 

will continue to work with industry and internally explore opportunities to find efficiencies to 

reduce the average processing times of Plans of Operations.
Budget Schedules 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 197

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2013 Act 2014 CY 2015 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land resources 0011 246 250 250

 Wildlife and fisheries 0012 62 53 54

 Threatened and endangered species 0013 21 22 23

 Recreation management 0014 66 70 70

 Energy and minerals 0015 113 116 122

 Realty and ownership management 0016 65 83 84

 Resource protection 0017 101 106 106

 Transportation and facilities maintenance 0018 65 76 76

 Workforce and organizational support 0020 158 162 163

 Challenge Cost Share 0026 3 8 8

 National Monuments & NCA 0030 31 32 33

Total direct obligations 0799 931 978 989

 Reimbursable program 0801 27 28 28

 Communication site rental fees 0802 2 2 2

 Mining law administration 0803 39 39 39

 APD fees 0804 31 33 33

 Cadastral reimbursable program 0805 8 9 9

 Inspection fees 0806 0 0 15

 Grazing fees 0807 0 0 3

Total reimbursable obligations 0899 107 111 129

Total new obligations 0900 1,038 1,089 1,118

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 132 155 176

 Recoveries of prior year unpaid obligations 1021 40 40 40

 Unobligated balance (total) 1050 172 195 216

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 952 957 954

 Appropriations permanently reduced - ATB 1130 -2 0 0

 Appropriations permanently reduced - SEQ 1130 -48 0 0

 Appropriation, discretionary (total) 1160 902 957 954

 Discretionary, Appropriations Committee

 Appropriation [Regular] 1160-40 881 938 935

 Baseline Civilian Pay 1160-50 524 550

 Baseline Non-Pay 1160-50 414 421

 Appropriation [Protected:Conserving Fish and 

Wildlife - Climate Change]

1160-40 18 16 16
2015 Budget Justifications Bureau of Land Management

Page VII - 198 Chapter VII – Management of Lands and Resources

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2013 Act 2014 CY 2015 BY

 Baseline Civilian Pay 1160-50 0 0

 Baseline Non-Pay 1160-50 16 16

 Appropriation [WHB Sterilization R&D] 1160-40 2 2 2

 Baseline Civilian Pay 1160-50 2 2

 Discretionary, Homeland Security, Appropriations 

Committee

 Appropriation [Homeland Security] 1160-40 1 1 1

 Baseline Civilian Pay 1160-50 1 1

 Baseline Non-Pay 1160-50 0 0

 Spending authority from offsetting collections, discretionary:

 Offsetting collections (Mining law and Comm 

Sites)

1700 42 42 42

 Offsetting collections (Economy Act) 1700 31 38 38

 Offsetting collections (APD fees) 1700 33 33 33

 Offsetting collections (Inspection fees) 1700 0 0 48

 Offsetting Collections (Other) 1700 23 0 7

 Change in uncollected payments, Federal 

sources

1701 -6 0 -55

 New and/or unobligated balance of spending 

authority from offsetting collections temporarily 

reduced

1723 -4 0

 Spending auth from offsetting collections, disc 

(total)

1750 119 113 113

 Discretionary, Appropriations Committee

 Spending authority from offsetting collections 

[Mining Law, Telecomm Fees, and Permits to Drill]

1750-40 73 75 75

 Spending authority from offsetting collections 

[Economy Act]

1750-40 31 38 38

 Spending authority from offsetting collections 

[User Fee: Inspection fees]

1750-40 0 0 48

 Spending authority from offsetting collections 

[Grazing Fees]

1750-40 0 0 7

 Spending authority from offsetting collections 

[other]

1750-40 15 0 -55

 Spending authority from offsetting collections 

[other]

1750-50 0 0

 Spending authority from offsetting collections, mandatory:

 Spending auth from offsetting collections, mand 

(total)

1850 0 0 0

 Budget authority (total) 1900 1,021 1,070 1,067

Total budgetary resources available 1930 1,193 1,265 1,283

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 155 176 165
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 199

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2013 Act 2014 CY 2015 BY

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 418 381 356

 Obligations incurred, unexpired accounts 3010 1,038 1,089 1,118

 Outlays (gross) 3020 -1,034 -1,074 -1,096

 Recoveries of prior year unpaid obligations, 

unexpired

3040 -40 -40 -40

 Recoveries of prior year unpaid obligations, 

expired

3041 -1 0 0

 Unpaid obligations, end of year 3050 381 356 338

 Uncollected payments:

 Uncollected pymts, Fed sources, brought 

forward, Oct 1

3060 -70 -64 -64

 Change in uncollected pymts, Fed sources, 

unexpired

3070 6 0 55

 Uncollected pymts, Fed sources, end of year 3090 -64 -64 -9

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 348 317 292

 Obligated balance, end of year 3200 317 292 329

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 1,021 1,070 1,067

 Outlays, gross:

 Outlays from new discretionary authority 4010 741 836 834

 Outlays from discretionary balances 4011 293 238 262

 Outlays, gross (total) 4020 1,034 1,074 1,096

 Offsets against gross budget authority and 

outlays:

 Offsetting collections (collected) from:

 Federal sources 4030 -31 -38 -38

 Discretionary, Appropriations Committee

 Discretionary, Appropriations Committee

 Policy Program [Mining Law, Comm Sites, 

APD Fees]

4033-41 -98 -75 -75

 Baseline Program [Mining Law, Comm Sites, 

APD Fees]

4033-71 -75 -76

 Policy Program [Inspection Fees] 4033-41 0 0 -48
2015 Budget Justifications Bureau of Land Management

Page VII - 200 Chapter VII – Management of Lands and Resources

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2013 Act 2014 CY 2015 BY

 Policy Program [Grazing Fees] 4033-41 0 0 -7

 Offsets against gross budget authority and 

outlays (total)

4040 -129 -113 -168

 Policy Program - Computed Total 4050-20 6 0 55

 Discretionary, Appropriations Committee

 Policy Program [Inspection Fees] 4050-41 6 0 48

 Policy Program [Grazing Fees] 4050-41 0 0 7

 Budget authority, net (discretionary) 4070 898 957 954

 Outlays, net (discretionary) 4080 905 961 928

Budget authority, net (total) 4180 898 957 954

Outlays, net (total) 4190 905 961 928

Memorandum (non-add) entries:

 Unavailable balance, SOY: Offsetting collections 5090 0 4 4

 Unavailable balance, EOY: Offsetting collections 5091 4 4 4

 Direct Federal programs:

 Budget Authority 2004-01 880 938 932

 Outlays 2004-02 889 945 911

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 362 356 355

 Other than full-time permanent 11.3 18 18 18

 Other personnel compensation 11.5 13 13 13

 Total personnel compensation 11.9 393 387 386

 Civilian personnel benefits 12.1 129 128 128

 Travel and transportation of persons 21.0 11 13 13

 Transportation of things 22.0 8 8 8

 Rental payments to GSA 23.1 22 24 26

 Rental payments to others 23.2 30 33 33

 Communications, utilities, and miscellaneous 

charges

23.3 20 21 21

 Printing and reproduction 24.0 2 2 2

 Advisory and assistance services 25.1 18 25 25

 Other services from non-Federal sources 25.2 132 135 145

 Other goods and services from Federal sources 25.3 49 55 56

 Operation and maintenance of facilities 25.4 6 7 8

 Research and development contracts 25.5 1 4 4

 Operation and maintenance of equipment 25.7 11 13 13

 Supplies and materials 26.0 24 26 27

 Equipment 31.0 11 13 14
Bureau of Land Management 2015 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 201

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2013 Act 2014 CY 2015 BY

 Land and structures 32.0 5 9 9

 Grants, subsidies, and contributions 41.0 59 70 70

 Insurance claims and indemnities 42.0 0 1 1

Subtotal, obligations 99.0 931 974 989

Reimbursable obligations:

 Personnel compensation:

 Full-time permanent 11.1 49 47 59

 Other than full-time permanent 11.3 2 2 6

 Other personnel compensation 11.5 2 2 2

 Total personnel compensation 11.9 53 51 67

 Civilian personnel benefits 12.1 18 17 18

 Travel and transportation of persons 21.0 2 2 2

 Transportation of things 22.0 1 1 1

 Rental payments to others 23.2 3 3 3

 Communications, utilities, and miscellaneous 

charges

23.3 2 2 2

 Advisory and assistance services 25.1 2 3 3

 Other services from non-Federal sources 25.2 8 10 10

 Other goods and services from Federal sources 25.3 11 12 12

 Operation and maintenance of facilities 25.4 0 4 4

 Operation and maintenance of equipment 25.7 1 1 1

 Supplies and materials 26.0 2 2 1

 Equipment 31.0 1 2 1

 Land and structures 32.0 0 2 2

 Grants, subsidies, and contributions 41.0 3 3 2

Subtotal, obligations 99.0 107 115 129

 Total new obligations 99.9 1,038 1,089 1,118

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 5,358 5,425 5,281

Reimbursable civilian full-time equivalent 

employment

2001 781 726 967

Allocation account civilian full-time equivalent 

employment

3001 2,381 2,376 2,456

Appropriations Requests in Thousands of Dollars 

(T)

Budget year budgetary resources [14-1109] 1000 954,085

Land Acquisition 

 

Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 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, [$19,463,000]$25,000,000, 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, 2014.)

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.

National Trails System Authorizes the Secretary to acquire lands or interests in lands 
2015 Budget Justifications Bureau of Land Management

Page VIII - 2 Chapter VIII – Land Acquisition

Act of 1968, as amended 

(16 U.S.C. 1241-1249)

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 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 3

Justification of Fixed Costs and Internal Realignments

Land Acquisition

(Dollars In Thousands)

Fixed Cost Changes and Projections 2014 Total 

or Change

2014 to 2015 

Change

Change in Number of Paid Days 

- +0 

The number of paid days do not change between FY2014 and FY2015.

Pay Raise +4 +5 

The change reflects the salary impact of a programmed one percent pay raise increase as proposed in 

the Circular A-11.

Employer Share of Federal Health Benefit Plans +1 +1 

The change reflects expected increases in employer's share of Federal Health Benefit Plans.

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Land Acquisitions - 17,977 - 15,949 +0 - +0 - +5,531 - 21,480 - +5,531 

Emergency & Hardships - 1,420 - 1,616 +0 - +0 - +0 - 1,616 - +0 

Acquisition Management 8 1,778 11 1,898 +6 - +0 - +0 11 1,904 - +6 

Total, Land Acquisition 8 21,175 11 19,463 + 6 - + 0 - +5,531 11 25,000 - +5,537

 Change from 

2014 Enacted 

Summary of Requirements

(dollars in thousands)

2013 Actual 2014 Enacted

Fixed 

Cost

 Transfers Program 

Changes 

 Requested 

Amount 

2015 President's Budget
2015 Budget Justifications Bureau of Land Management

Page VIII - 4 Chapter VIII – Land Acquisition

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Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 5

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Land Acquisitions $000 17,977 15,949 +0 +0 +5,531 21,480 +5,531

FTE 0 0 +0 +0 0 +0

Emergency & Hardships $000 1,420 1,616 +0 +0 +0 1,616 +0

FTE 0 0 +0 +0 0 +0

Acquisition Management $000 1,778 1,898 +6 +0 +0 1,904 +6

FTE 8 11 +0 +0 11 +0

Total, Land Acquisition $000 21,175 19,463 +6 +0 +5,531 25,000 +5,537

FTE 8 11 +0 +0 11 +0

Other Sources: 

Proposed for FY 2015, Permanent Appropriation: Permanent Land Acquisition20 64,397 64,397

The 2015 budget proposes to fund the Land Acquisition program with an appropriation from the 

Land and Water Conservation Fund at a total level of $25,000,000 and 11 FTE, a program 

change of +$5,531,000 from the 2014 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. 

 

20 In addition to this current request, the Administration will submit a legislative proposal to permanently authorize annual funding 

without further appropriation from the Land and Water Conservation Fund.

Activity: Land Acquisition
2015 Budget Justifications Bureau of Land Management

Page VIII - 6 Chapter VIII – Land Acquisition

Major Components of BLM’s Land Acquisition Program

($000) 2013

Enacted

2014 

Enacted

2015

Discretionary Mandatory

Land Acquisition - Core Projects 13,511 11,646 10,254 26,753

Land Acquisition - Collaborative Projects 5,572 4,303 9,226 25,144

Total Land Acquisition Project Funding 19,083* 15,949 19,480 51,897

Sportsman/Recreational Access 2,000 8,000

Acquisition Management 1,892 1,898 1,904 3,000

Inholdings, Emergencies & Hardships 1,506 1,616 1,616 1,500

Total BLM Land Acquisition Funding 22,481 19,463 25,000 64,397

* The 2013 enacted amount includes a portion of funding for hunter and angler access.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 7

Activity: Land Acquisition

Subactivity: Land Acquisition

2013 

Actual

2014 

Enacted

2015 President's Budget

Fixed 

Cost 

Changes

Transfers Program 

Changes

Requested 

Amount

Change 

from 

2014

Land Acquisition $000 17,977 15,949 +0 +0 +5,531 21,480 +5,531

FTE 0 0 +0 0 0 +0

Summary of 2015 Program Changes for Land Acquisition: ($000) FTE

Increase Landscape Acquisition Projects +5,531 +0 

Total +5,531 +0 

Justification of 2015 Program Changes

The 2015 budget request for the Land Acquisition program is $21,480,000, a program change of 

+$5,531,000 from the 2014 enacted level.

Increase Landscape Acquisition Projects (+$5,531) - In 2015, the BLM will acquire high 

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

programs. The 2015 core program is $12.3 million and will fund ten of BLM’s highest priorities. 

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

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

bureau-specific programmatic needs. The Department of the Interior and the Forest Service 

collaborated extensively to develop a process to more effectively coordinate land acquisitions 

with government and local community partners to achieve the highest priority shared 

conservation goals. The 2015 request includes a total of $9.2 million for seven collaborative 

landscape-planning projects. Within this total, BLM includes $4.6 million for the California Desert 

Southwest landscape and $4.6 million for projects that are part of the National Trails System 

landscape.

Legislative Change

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

proposes to permanently authorize annual mandatory funding, without further appropriation or 

fiscal year limitation for the Departments of the Interior and Agriculture Land and Water 

Conservation Fund (LWCF) programs beginning in fiscal year 2015. Starting in 2016, $900 

million annually in permanent funds would be available. During the transition to full permanent 

funding in 2015, the budget proposes $900 million in total LWCF funding, comprised of $550 

million in permanent and $350 million discretionary funds. The amounts requested include the 

authorized levels for the Department of the Interior and the Department of Agriculture.

In FY 2015, the LWCF mandatory proposal for BLM includes $64.4 million for Federal Land 

acquisition. Land acquisition funds are also used to secure access for the American public to 

their Federal lands. Concurrent with the America’s Great Outdoor initiative, these funds will 

invest in acquisitions to better meet recreation access needs by working with willing landowners 
2015 Budget Justifications Bureau of Land Management

Page VIII - 8 Chapter VIII – Land Acquisition

to secure rights-of-way, easements or fee simple lands that provide access or consolidate 

Federal ownership so that public has unbroken spaces to recreate, hunt, and fish. BLM will 

focus $8.0 million in the permanent account towards projects to acquire access for 

sportsmen/recreation.

Program Overview

The Land Acquisition Program promotes the conservation of natural landscapes and resources 

by consolidating public lands through purchase, exchange and donation to increase 

management efficiency and preserve areas of natural, cultural, and recreational importance. 

Acquisition projects occur within or adjacent to nationally-designated management units, 

including National Monuments, National Conservation Areas, Wilderness, National Wild and 

Scenic Rivers, National Scenic Trails, and National Historic Trails, as well as in BLM-designated 

Areas of Critical Environmental Concern and Special Recreation Management Areas. Land 

acquisition funding is also necessary to acquire small parcels of land and/or access easements 

through these lands to provide public access to “landlocked” BLM lands. The BLM estimates 23 

million acres (or 9 percent) of BLM-managed public lands lack public access or have inadequate 

public access, primarily due to checkerboard land ownership patterns. Securing and improving 

public access to these lands will serve various recreational activities, including hunting and 

fishing. 

The Land Acquisition Program improves river and riparian conservation and restoration;

conserves and protects wildlife habitat; preserves natural and cultural heritage resources;

provides opportunities for environmentally responsible recreation; restores at-risk resources;

and maintains functioning ecosystems through land acquisition. Communication, cooperation, 

and consultation with local communities and interested parties are key elements of the Land 

Acquisition Program. Funds for the Land Acquisition program are derived from the Land and 

Water Conservation Fund (LWCF). 

The BLM also has funding from other sources outside the Land Acquisition appropriation, such 

as from the Southern Nevada Public Land Management Act and other land sale authorizations. 

The Budget includes a legislative proposal to reauthorize the Federal Land Transaction 

Facilitation Act and allow lands identified as suitable for disposal in recent land use plans to be 

sold using the FLTFA authority. FLTFA sales revenues would continue to be used to fund the 

acquisition of environmentally sensitive lands and the administrative costs associated with 

conducting sales, which would provide funding for land acquisition as well. These legal 

authorities are described in the Lands and Realty Management section of the Management of 

Lands and Resources chapter, and various land sale accounts are described in the Permanent 

Operation Funds chapter.

Collaborative Landscape Planning at the U.S. Department of the Interior – The 2015 Federal 

Land Acquisition Program builds on efforts started in 2011 to develop a program that supports 

strategic interagency landscape-scale conservation projects, while continuing to meet agencyspecific programmatic needs. These efforts were partially initiated in response to Congressional 

direction to the Department and the U.S. Forest Service (USFS) to use LWCF land acquisition 

funds jointly and more strategically to protect contiguous landscapes and meet shared 

conservation goals. Interior bureaus collaborated extensively with the USFS to develop a 

process to coordinate land acquisition planning with government and local community partners 

to achieve the highest priority shared conservation goals more effectively. 
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 9

The resulting Collaborative Landscape Planning process is designed to: 

 Use the LWCF to incentivize collaborative planning for measurable outcomes at the 

landscape scale; 

 Invest LWCF resources in some of the most ecologically important landscapes; and 

 Invest in projects that have a clear strategy to reach shared goals grounded in sciencebased planning, are driven by and responsive to local community initiatives, and will 

make the most efficient use of Federal funds.

The joint Interior-Agriculture National Selection Committee identified a number of ecosystems 

throughout the Nation where high priority shared conservation goals can be achieved based on 

existing locally-driven conservation efforts. Through the rigorous merit based evaluation 

process, eight ecosystems were selected for inclusion in the 2015 budget. The BLM is involved 

in four of those landscapes including the High Divide, Florida-Georgia Longleaf Pine, California 

Southwest Desert and the National Trails landscapes.

Investing now in these ecologically important but threatened landscapes will ensure that they 

remain resilient in the face of development pressures and global climate change. Smart 

investment in strategic conservation in these landscapes will prevent further ecosystem decline 

or collapse, which is expected to preclude the need for future investments in restoration. The 

proposed Federal investments in these landscapes will additionally leverage significant private 

commitments to land and water conservation in the Crown of the Continent and Longleaf Pine 

ecosystems.

2015 Program Performance

In 2015, the BLM has plans for 17 acquisition projects (10 core and seven collaborative) in eight 

States with discretionary funding. With mandatory funding, the BLM has plans for 24 acquisition 

projects (11 core and 13 collaborative) in eight States. These acquisitions will strengthen the 

BLM’s efforts to preserve wildlife habitat and wilderness, conserve and protect cultural and 

historic resources, retain open space, and enhance public recreation opportunities in the 

western U.S. in perpetuity. The BLM will utilize innovative methods to acquire lands, including 

conservation easements, leveraged purchases, and the purchase of development rights where 

these methods meet management objectives and landowner needs. Planned acquisitions for 

2015 are listed on the following page. The subsequent pages include maps of the acquisition 

projects and project descriptions.

The following lists of proposed land acquisition projects is the current set of land acquisition 

priorities that has been vetted and approved by the BLM and Departmental leadership to meet 

the high priority programmatic needs during fiscal year 2015. 
2015 Budget Justifications Bureau of Land Management

Page VIII - 10 Chapter VIII – Land Acquisition


Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 11

Bureau of Land Management

Land and Water Conservation Fund

2015 National Project Priorities (Discretionary) Map
2015 Budget Justifications Bureau of Land Management

Page VIII - 12 Chapter VIII – Land Acquisition

Bureau of Land Management

Land and Water Conservation Fund

2015 National Project Priorities (Mandatory) Map
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 13

Bureau of Land Management

Land and Water Conservation Fund

FY2015 National Project Priorities – Current

Rank State Collaborative Landscape/Project Name or Core Project Name1

FY2015 

President's Budget 

Request 

(Current)

1

California Desert SW

CA California Wilderness $1,720,000

CA Santa Rosa and San Jacinto Mountains National Monument $1,000,000

CA Pacific Crest National Scenic Trail $950,000

CA San Sebastian Marsh/San Felipe Creek ACEC $982,000

California Desert SW Total $4,652,000

2 ID Upper Snake/South Fork Snake River ACEC/SRMA $1,000,000

3 OR John Day National Wild and Scenic River $600,000

4 OR Sandy River ACEC/Oregon National Historic Trail $1,000,000

5 WY North Platte River SRMA $1,200,000

6 CO Canyons of the Ancients National Monument $1,200,000

$5,000,000

7

National Trails System

ID Nez Perce National Historic Trail/Henrys Lake ACEC $3,000,000

OR Pacific Crest National Scenic Trail $542,000

MT Lewis and Clark National Historic Trail $1,032,000

National Trails System Total $4,574,000

8 CO McInnis Canyons National Conservation Area $210,000

9 CO Dominguez-Escalante National Conservation Area $288,000

10 AZ Ironwood Forest National Monument $950,000

11 NM Rio Grande del Norte National Monument $2,900,000

$4,348,000

12 OR Cascade-Siskiyou National Monument $906,000

Core Projects $10,254,000

Collaborative Landscape Planning Projects $9,226,000

Subtotal, Line-Item Projects $19,480,000

Sportsman/Recreational Access $2,000,000

Emergency/Inholding/Hardship $1,616,000

Acquisition Management $1,904,000

TOTAL, Bureau of Land Management Land Acquisition $25,000,000

1

Acronyms

ACEC = Area of Critical Environmental Concern

SRMA = Special Recreation Management Area
2015 Budget Justifications Bureau of Land Management

Page VIII - 14 Chapter VIII – Land Acquisition

Bureau of Land Management

Land and Water Conservation Fund

FY2015 National Project Priorities – Permanent

Rank State Collaborative Landscape/Project Name or Core Project Name1

FY2015 

President's Budget 

Request 

(Permanent)

13

California Desert SW

CA California Wilderness $0

CA Santa Rosa and San Jacinto Mountains National Monument $4,824,000

CA Pacific Crest National Scenic Trail $1,511,000

CA San Sebastian Marsh/San Felipe Creek ACEC $1,367,000

CA Big Morongo ACEC $800,000

California Desert SW Total $8,502,000

14 ID Upper Snake/South Fork Snake River ACEC/SRMA $1,900,000

15 OR John Day National Wild and Scenic River $2,250,000

16 OR Sandy River ACEC/Oregon National Historic Trail $2,500,000

$6,650,000

17

National Trails System

MT Lewis and Clark National Historic Trail $1,148,000

National Trails System Total $1,148,000

18 CO McInnis Canyons National Conservation Area $1,625,000

19 AZ Ironwood Forest National Monument $1,170,000

$2,795,000

20

Florida-Georgia Long Leaf Pine

FL Lathrop Bayou Habitat Management Area $275,000

Florida-Georgia Long Leaf Pine Total $275,000

21 OR Cascade-Siskiyou National Monument $5,000,000

22 CA Carrizo Plain National Monument $300,000

23 MT Upper Missouri National Wild and Scenic River $3,408,000

24 AZ Agua Fria National Monument $3,300,000

$12,008,000

25

Upper Rio Grande

CO Blanca Wetlands ACEC/SRMA $6,426,000

NM Rio Grande del Norte National Monument $1,660,000

Upper Rio Grande Total $8,086,000

26 CA Panoche-Coalinga ACEC $3,300,000

27 CO Colorado River SRMA $2,000,000

$5,300,000
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 15

Rank State Collaborative Landscape/Project Name or Core Project Name1

FY2015 

President's Budget 

Request

(Permanent)

28

High Divide

ID Sands Desert Habitat Management Area $1,850,000

ID Salmon River SRMA/Salmon River Watershed $3,725,000

ID Chilly Slough/Thousand Springs ACEC $250,000

ID Oregon National Historic Trail $440,000

MT Madison River SRMA $868,000

High Divide Total $7,133,000

Core Projects $26,753,000

Collaborative Landscape Planning Projects $25,144,000

Subtotal, Line-Item Projects $51,897,000

Sportsman/Recreational Access $8,000,000

Emergency/Inholding/Hardship $1,500,000

Acquisition Management $3,000,000

TOTAL, Bureau of Land Management Land Acquisition $64,397,000

1

Acronyms

ACEC = Area of Critical Environmental Concern

SRMA = Special Recreation Management Area
2015 Budget Justifications Bureau of Land Management

Page VIII - 16 Chapter VIII – Land Acquisition

California Wilderness

DISCRETIONARY

CALIFORNIA Multiple Congressional District: 

Location All of California Acquired to Date

Method Acres1 Cost ($)

Purchase 160,100 $31,220,000

Purpose Consolidate public ownership within 

designated wilderness to preserve 

wilderness character and increase 

opportunities for the public to 

experience primitive recreation.

Exchange2125,000 $24,375,000

Donation2112,800 $21,995,000

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Over 100 properties in 15 wilderness 

units face immediate threat from 

commercial, industrial, rural residential 

and suburban development, and 

unregulated motorized recreational use.

Purchase 4,285 $1,720,000

Pending Future Action

Method Acres1 Cost ($)

Pending 201,365 $152,441,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Mojave Desert Land Trust, Friends of the Desert Mountains, Wilderness Land Trust.

Cooperators Resources Legacy Fund Foundation, The Wilderness Society, The California 

Wilderness Coalition, The Nature Conservancy, The Sierra Club, The Wildlands 

Conservancy, California State Lands Commission, California Native Plants Society, 

PCT 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 Wilderness Areas also provide important habitat to a wide variety of animal and 

plant species, many threatened and endangered, and some Federally-listed species. 

There are six Wilderness Areas that are transected by the 2,638-mile Pacific Crest 

National Scenic Trail (PCT), as well as seven Wilderness Areas that are located 

adjacent to the Juan Bautista de Anza and Old Spanish National Historic Trails.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $2,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 17

Santa Rosa and San Jacinto Mountains National Monument

DISCRETIONARY

CALIFORNIA Riverside County Congressional District: 36

Location Southern California, directly south and 

west of Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 18,888 $15,500,000

Purpose Conserve significant scenic, 

recreational, and wilderness resources 

within the Santa Rosa and San Jacinto 

Mountains National Monument (NM). 

Increase recreational access/public use.

Exchange23,672 $2,225,000

Donation21,267 $1,600,000

Other 0 $0

Partners 48,862 $50,000,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

One property facing intermediate threat 

from renewable energy development 

and incompatible recreational use and 

demands.

Purchase 197 $1,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 25,118 $25,000,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Friends of the Desert Mountains, Coachella Valley Mountains Conservancy.

Cooperators U.S. Fish and Wildlife Service, U.S. Forest Service, California Department of Fish and 

Game, Coachella Valley Conservation Commission, Cities of Palm Desert and Palm 

Springs, Resources Legacy Fund Foundation, Agua Caliente Band of Cahuilla Indians.

Project 

Description

Providing a rugged backdrop to the gateway communities of Palm Springs, Palm 

Desert and La Quinta, the Santa Rosa and San Jacinto Mountains National Monument 

hosted over 500,000 visitors in 2012. However, rapid urbanization, immediately 

adjacent to the Monument, ironically is threatening the tremendous scenic and wildlife 

resource values, which helped to establish these resort communities in the early

1900’s.

Encompassing 272,000 acres, the Santa Rosa and San Jacinto Mountains National 

Monument is a series of steep escarpments, ranging from sea level to nearly 11,000 

feet in elevation. This undeveloped “island” is home to over 600 animal and plant 

species, residing within several distinct climatic zones. Numerous threatened and 

endangered species, including one of the nation’s largest herds of Peninsular bighorn 

sheep, the least Bell’s vireo, populations of desert tortoise and desert slender 

salamander, and unique fan palm oases, are found among the area’s perennial 

streams, springs and seeps. The Monument is within the Coachella Valley Multiple 

Species Habitat Conservation Plan.

The Monument is co-administered by the BLM and Forest Service (64,400 acres of the

Monument lie within the San Bernardino National Forest). Three Wilderness areas, the

94,989-acre Santa Rosa Mountain Wilderness, administered by BLM, and the 19,695-

acre Santa Rosa Wilderness and a portion of the 33,177-acre San Jacinto Wilderness, 

administered by the Forest Service are imbedded within the Monument boundary. The

2,683-mile Pacific Crest National Scenic Trail passes through the Monument.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $1,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 18 Chapter VIII – Land Acquisition

Pacific Crest National Scenic Trail (California)

DISCRETIONARY

CALIFORNIA Riverside County Congressional District: 45

Location Southern California, 20 miles northwest 

of Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 16,000 $19,185,000

Purpose Acquire two parcels containing the tread 

of the Pacific Crest National Scenic 

Trail and preservation of trail viewshed.

Exchange222,000 $28,760,000

Donation23,900 $7,665,000

Other 600 $1,000,000

Partners 3,400 $7,197,090

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

The parcels have been pre- purchased 

and held by Friends of the Desert 

Mountains for resale to BLM. The 

parcels are threatened with renewable 

energy development and associated 

facilities.

Purchase 360 $950,000

Pending Future Action

Method Acres1 Cost ($)

Pending 64,280 $45,980,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Friends of the Desert Mountains.

Cooperators Pacific Crest Trail Association, Back Country Horseman's Association, Endangered 

Habitats League, Wildlands Conservancy, Coachella Valley Mountains Conservancy.

Project 

Description

From scorching desert valleys in Southern California to rain forests in the Pacific 

Northwest, the 2,663-mile long Pacific Crest National Scenic Trail (NST) offers hikers 

and equestrians a unique, varied experience from Mexico to Canada through three 

western states. It reveals the beauty of the desert, unfolds the glaciated expanses of 

the Sierra Nevada, and provides commanding vistas of volcanic peaks and glaciers in 

the Cascade Range. The trail also passes through historic mining sites and evidence 

of man’s endless quest for natural resources.

The Pacific Crest NST was congressionally designated a National Scenic Trail in 1968. 

Thousands of hikers and equestrians enjoy this national treasure each year. Some 

only travel a few miles, while others complete every mile in a single season. About 300 

hikers attempt to cover the full length of the Pacific Crest NST each year. In California, 

hikers and riders often must cover 20-30 miles of trail between water sources.

Located within driving distance of San Diego and Los Angeles, the southern reaches of 

the Pacific Crest NST is both easily accessible and blissfully wild at the same time. The 

Pacific Crest NST departs from the Mexican border near the small town of Campo.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 19

San Sebastian Marsh/San Felipe Creek Area of Critical 

Environmental Concern

DISCRETIONARY

CALIFORNIA Imperial County Congressional District: 51

Location Southern California, 30 miles northwest 

of El Centro.

Acquired to Date

Method Acres1 Cost ($)

Purchase 356 $99,000

Purpose Protect and preserve a desert riparian 

ecosystem which provides habitat for 

endangered species, a key wildlife 

corridor and ecological processes. 

Consolidate federal ownership.

Exchange20 $0

Donation21,133 $285,000

Other 80 $36,000

Partners 1,213 $320,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Over 25 parcels are currently available 

for purchase in the Area of Critical 

Environmental Concern (ACEC).

Purchase 1,986 $982,000

Pending Future Action

Method Acres1 Cost ($)

Pending 3,954 $1,567,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Trust for Public Land.

Cooperators California Department of Fish and Game, U.S. Fish and Wildlife Service, U.S. Bureau 

of Reclamation, U.S. Geological Survey, University of California at Davis.

Project 

Description

The San Sebastian Marsh/San Felipe Creek ACEC is located in western Imperial 

County and is situated in a shallow basin varying in width from a few hundred feet to 

over a half of a mile, which drains northeast into the Salton Sea. This unique, waterbased habitat along San Felipe Creek has supplied a permanent, dependable source 

of water for people and wildlife since ancient times. The marsh was a stopping place 

for the Spanish explorer de Anza, who named it after his Indian guide Sebastian 

Tarabel.

The marsh is designated critical habitat for the desert pupfish, an endangered species. 

An isolated population of the leopard frog has also been recorded. This area is 

contains a number of BLM sensitive bird species and a total of 88 different bird species 

has been observed here. Because of its importance in sustaining this unique 

marshland environment. San Felipe Creek is a registered National Natural Landmark. 

San Felipe Creek has also been designated an Area of Critical Environmental Concern 

(ACEC).

The area around the creek and marsh are easily damaged and very sensitive. The 

marsh is closed to vehicle use, with closure of boundaries clearly posted. However, 

because the land ownership pattern is a checkerboard, managing this special habitat is 

very challenging. Land acquisitions can greatly assist in our management of this 

ACEC. San Sebastian Marsh is open to hiking and is a popular area for nature study.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 20 Chapter VIII – Land Acquisition

Upper Snake/South Fork Snake River Area of Critical

Environmental Concern/Special Recreation Management Area

DISCRETIONARY

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 10,698 $30,227,907

Purpose Conserve and enhance significant 

scenic, recreational, and wildlife 

resources within the Snake River 

corridors, predominately through the 

acquisition of conservation easements.

Exchange240 $40,000

Donation20 $3,455,550

Other 1,563 $4,665,444

Partners 10,233 $17,644,862

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing immediate 

threat from rural residential and resort 

development. Sustaining historic family 

farming/ranching operations is a priority.

Purchase 380 $1,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 4,279 $11,900,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund, Teton Regional Land Trust, The Nature Conservancy.

Cooperators Local county and municipal support, Idaho Department of Fish and Game, ShoshoneBannock Tribes, Bonneville Power Administration, Ducks Unlimited, Trout Unlimited, 

Henrys Fork Foundation, Henrys Fork Legacy Project.

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. It is considered Idaho's 

#1 Priority Wetland based on resource values and threats to the river (Idaho Parks & 

Recreation report). 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 including habitat for the expanding 

Yellowstone National Park grizzly bear population, a Federally threatened species. The 

area provides crucial habitat for 126 bird species, including the majority of Idaho’s bald 

eagle production and has been designated as a Nationally Important Bird Area.

The first World Fly Fishing Championship in North America took place on the South 

Fork in 1997. Diverse water based 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 income. The 

scope of the project increased dramatically as a result of enormous public support and 

the residual impact from the 1997 100-year flood event. The project shares a 

contiguous boundary with the Caribou- Targhee National Forest, administered by the 

Forest Service, and serves as a national model for land conservation, strategically 

utilizing conservation easements in an effort to preserve the unique values of this area.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 21

John Day National Wild and Scenic River/ South Fork John 

Day National Wild and Scenic River

DISCRETIONARY

OREGON Wheeler, Gilliam, Sherman, and 

Grant Counties Congressional District: 2

Location North central Oregon, 95 miles 

southeast of Portland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 11 $40,000

Purpose Conserve significant scenic, recreation, 

fisheries, wildlife, cultural, 

paleontological and botanical values. 

Increase recreational access.

Exchange20 $0

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties threatened with 

commercial use, residential 

development and seasonal rural 

residential development.

Purchase 365 $600,000

Pending Future Action

Method Acres1 Cost ($)

Pending 1,219 $2,250,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Trust for Public Land, Western Rivers Conservancy.

Cooperators Oregon Parks and Recreation Department, Oregon Department of Fish & Wildlife, 

Oregon Watershed Enhancement Board, Gilliam and Sherman Counties Soil & Water 

Conservation Districts, Lower John Day Working Group.

Project 

Description

The John Day River (JDR) is the third longest free-flowing river in the contiguous 

United States. In 1988, Congress designated 147 of its 281 miles as the John Day 

National Wild and Scenic River (JDNWSR). The 6,382-acre Spring Basin Wilderness 

was created in March 2009 and is bordered by the JDNWSR. The wilderness 

comprises rugged cliffs, remote canyons and colorful geologic features. Common 

wildlife species in the area include mule deer, golden eagle, prairie falcon, bobcat, 

mountain bluebird and meadowlark.

The JDR is the Columbia Basin's most biologically diverse river system with the largest 

native fish populations in Oregon, including Chinook salmon, Mid-Columbia Steelhead 

and Bull Trout; both listed as Threatened. The system includes the mainstem and its 

North, Middle and South Forks and covers more than 500 river miles. The JDR and its 

tributaries have been identified as a salmon stronghold and key for recovery of 

important fish populations. The landscape also provides enhanced opportunities for 

bats, neo-tropical and resident birds and dispersal territories for wide-ranging species 

like elk, mule deer and wolverine.

The project area has several Congressional and administrative designations including: 

the newly designated Spring Basin Wilderness, seven Wilderness Study Areas, the 

John Day and South Fork JDNWSR, State Scenic Waterways, State Wildlife 

Management Areas along the lower mainstem and along the South Fork and the John 

Day Fossil Beds National Monument (managed by the National Park Service). 

Acquisition of the proposed parcels will benefit habitat and also ensure public access 

to thousands of acres of public land for a diverse range of highly desirable recreational 

opportunities.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $2,500.
2015 Budget Justifications Bureau of Land Management

Page VIII - 22 Chapter VIII – Land Acquisition

Sandy River Area of Critical Environmental Concern

Oregon National Historic Trail

DISCRETIONARY

OREGON Clackamas and Multnomah 

Counties Congressional District: 3

Location Northwest Oregon, 20 miles southeast 

of Portland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 3,150 $16,883,000

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.

Exchange23,548 $15,761,730

Donation20 $0

Other 0 $0

Partners 1,500 $6,660,115

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing immediate 

threat from commercial and rural 

residential development and 

subdivision, and degrading land use 

practices.

Purchase 100 $1,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 577 $5,500,000

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.

Project 

Description

A breath-taking scenic corridor immediately east of metropolitan Portland, the Sandy 

and Salmon Rivers descend from the forested slopes of Mount Hood, harboring a rich 

diversity of animal and plant populations, within secluded riparian and wetland areas. 

Multiple threatened salmonid species, including Lower Columbia Chinook and Coho 

salmon and Steelhead use these turbulent waters for spawning and rearing their young 

before returning to the Pacific Ocean via the Columbia River. Old growth stands of 

Douglas fir contain prime habitat for the threatened northern spotted owl.

The Sandy River Area of Critical Environmental Concern (ACEC) project offers 

exceptional recreational opportunities for fishing, hiking, wildlife viewing, nature study, 

and non- motorized boating or floating. The project is easily accessible from the 

Portland Metro area, the Northwest’s second largest population center.

The 29,000-acre Sandy River ACEC project 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.

O&M Cost Estimated “start-up” cost: $2,500. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 23

North Platte River Special Recreation Management Area

DISCRETIONARY

WYOMING Natrona County Congressional District: 1

Location Central Wyoming, up to 50 miles 

southwest of Casper.

Acquired to Date

Method Acres1 Cost ($)

Purchase 1,063 $6,996,000

Purpose Enhance public recreation 

opportunities, preserve riparian/ wetland 

and endangered species habitat along 

the North Platte river, and conserve 

Greater Sage-grouse habitat.

Exchange20 $0

Donation20 $0

Other 0 $0

Partners 706 $890,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple riverfront opportunities, facing 

threats from commercial and rural 

development, are immediately 

available.

Purchase 148 $1,200,000

Pending Future Action

Method Acres1 Cost ($)

Pending 36,620 $40,421,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators Wyoming Game and Fish Department, City of Casper, Platte River Parkway Trust, 

Wyoming Fly Casters, North Platte Walleyes Unlimited.

Project 

Description

Weaving a fragile thread of green through the high plains of central Wyoming, the 

vegetative corridor hugging the banks of the North Platte River represents the rarest of 

Western ecosystems, only 1% of land in Wyoming constitutes riparian/wetland habitat.

The 4,600-acre North Platte River Special Recreation Management Area (SRMA) 

includes a 45-mile segment of the North Platte, between Pathfinder National Wildlife 

Refuge (administered by the Fish and Wildlife Service) and the City of Casper. While 

the flow of the North Platte is regulated, the river remains lightly impacted by 

agriculture, mining, and rural residential subdivision. Native cottonwood stands along 

the river are critical to a wintering bald eagle population. The Oregon, California, 

Mormon Pioneer, and Pony Express National Historic Trails, diverging from and 

interpreted at Casper’s National Historic Trails Interpretive Center followed the natural 

contour of the North Platte River valley more than a century ago. Over 62,000 acres of 

sage-grouse core area combine with abundant natural resources, amidst vast relatively 

untrammeled landscapes. Short grass prairies and sagebrush steppe communities are 

intermixed with mountain shrubs bounded by riparian corridors. Uplifts along with 

sandstone hogbacks and cuestas add color and create diversity in this vast landscape. 

The combination of these varied components is critical to the life cycle and long-term 

survival of the sage-grouse.

An intermingled land ownership pattern stymies public access to and use of the river. 

Minutes away from Casper’s 50,000 residents, local outdoor enthusiasts and area 

visitors have turned to the BLM to address their growing demand for river access. The 

popularity of the Platte River Parkway, Casper’s highly successful “greenway” project 

initiated in 1982, and public fishing access easements purchased by the Wyoming 

Game and Fish Department (WGFD) along the North Platte are indicators of public 

use. The North Platte is regarded by the WGFD as as a "Blue Ribbon/Class I" trout 

fishery.

O&M Cost Estimated “start-up” cost: $50,000. Estimated “annual” maintenance: $15,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 24 Chapter VIII – Land Acquisition

Canyons of the Ancients National Monument

DISCRETIONARY

COLORADO Montezuma County Congressional District: 3

Location Southwest Colorado, 20 miles west and 

northwest of Cortez.

Acquired to Date

Method Acres1 Cost ($)

Purchase 7,630 $6,453,135

Purpose Purchase private inholdings and 

edgeholdings to protect significant 

cultural, scenic, recreation and wildlife 

values and to preserve the integrity of 

the landscape.

Exchange21,080 $756,000

Donation2520 $884,000

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Two properties facing immediate threats 

from rural residential development, 

vandalism, and degrading land use 

practices.

Purchase 440 $1,200,000

Pending Future Action

Method Acres1 Cost ($)

Pending 9,238 $10,037,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators National Trust for Historic Preservation, The Archaeological Conservancy, Colorado 

Preservation, Inc., Crow Canyon Archaeological Center, San Juan Mountains 

Association, San Juan Citizen’s Alliance, Colorado Division of Wildlife, Colorado 

Archaeological Society.

Project 

Description

The 173,000-acre Canyons of the Ancients National Monument was established in 

2000 to protect cultural and natural resources on a landscape scale. The remarkable 

cultural resources here have been a focal point of explorers and researchers for 130 

years. The Monument contains the highest density of cultural resource sites in the 

nation with more than 100 sites/square mile; 6,000 sites are documented and a total of 

20,000-30,000 are predicted. Site types include cliff dwellings, villages, great kivas, 

shrines, agricultural fields, check dams, petroglyphs and pictographs and pottery kilns. 

Many sites have standing walls. Eight sites and one District (including 167 sites), are 

listed on the National Register of Historic Places. Lowry Pueblo is a National Historic 

Landmark. Native Americans maintain close ties to the landscape and to the sites 

occupied by their ancestors. The BLM staff regularly involves tribal consultants in 

interpretation and education projects. Canyons of the Ancients offers an unparalleled 

opportunity to observe, study, and experience how cultures lived and adapted over 

time in the American Southwest.

Monument resources include spectacular land forms with deeply incised canyons, 

sheer sandstone cliffs, and panoramic vistas; riparian areas with habitat for the 

threatened and endangered Southwestern Willow flycatcher and unique herpetological 

species such as the Longnose Leopard lizard and the Desert Spiny lizard, both on the 

State Director’s Sensitive Species List. Wildlife includes deer, elk, mountain lion, bear, 

coyote, fox, wild turkey, falcons and eagles. The Monument includes three Wilderness 

Study Areas and surrounds three units of Hovenweep National Monument, managed 

by the National Park Service. Approximately 45,000 annual visitors take advantage of 

opportunities for visiting cultural resource sites, camping, hiking, horseback riding, 

mountain biking and ATVs (on existing roads), hunting, and wildlife viewing.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $2,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 25

Nez Perce (Nee-Me-Poo) National Historic Trail

Henrys Lake Area of Critical Environmental Concern

DISCRETIONARY

IDAHO Fremont County Congressional District: 2

Location Southeast Idaho, 14 miles west of

Yellowstone National Park.

Acquired to Date

Method Acres1 Cost ($)

Purchase 2,076 $2,357,192

Purpose Further a conservation easement 

purchase program to conserve a 

national trail corridor, working ranch 

land, open spaces, wetlands and 

wildlife habitat for recreation.

Exchange2383 $1,005,000

Donation20 $93,000

Other 597 $374,180

Partners 2,791 $4,639,080

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Excellent opportunities to protect 

remaining ranch lands by providing a 

significant economic incentive to

keep the ranch property intact.

Purchase 3,000 $3,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 2,000 $3,000,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Teton Regional Land Trust.

Cooperators The Conservation Fund, Idaho Department of Fish & Game, Caribou-Targhee National 

Forest, Henrys Fork Legacy Project, Greater Yellowstone Coalition, Henrys Fork 

Foundation.

Project 

Description

The Nez Perce National Historic Trail (NHT) follows the same journey undertaken by a 

band of the Nez Perce Indian tribe in 1877 during their attempt to flee the U.S. Cavalry. The 

1,170 mile trail was created in 1986 as part of the National Trails System Act and is 

managed by the U.S. Forest Service. The trail traverses through portions of Idaho, 

Montana, Oregon and Wyoming and connects 38 separate sites across these four states 

that commemorate significant events which occurred to the Nez Perce during their attempt 

to escape capture by the U.S. Cavalry who were under orders to move the Indians onto a 

reservation. There is no visible trace of the Nez Perce NHT remaining on the Diamond D 

Ranch; however, an intensive inventory has not been conducted to locate trail segments, or 

associated sites or features related to their 1877 flight. Currently, U.S. Highway 20 follows 

the trail corridor through this area.

On the western doorstep of Yellowstone National Park and surrounded by the Continental 

Divide, the 35,875-acre Henrys Lake Area of Critical Environmental Concern’s exceptional 

aesthetic and wildlife values have been an attraction to generations of Americans who have 

fished, hiked, hunted, skied and snowmobiled here. The area offers high quality open 

space, rangeland, streams, wetlands, and wildlife and fish resources to the approximately 

4,000,000 annual visitors who pass through the area. Antelope, elk, moose, and mule deer 

utilize the region for summer/winter range and as a migratory corridor connecting summer 

range in Yellowstone National Park with winter range in Idaho and Montana. The worldrenowned Henrys Lake fishery is the last stronghold in the Henrys Fork basin for the 

Yellowstone cutthroat trout. Working ranches in the area provide valuable summer range 

for cattle operations based throughout Idaho, contributing an important economic base for 

ranching families. Diverse recreation, attracted to the basin’s natural open space, provides 

a critical economic base to the local communities.

O&M Cost Estimated “start-up” cost: $2,000. Estimated “annual” maintenance: $2,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 26 Chapter VIII – Land Acquisition

Pacific Crest National Scenic Trail (Oregon)

DISCRETIONARY

OREGON Jackson County Congressional District: 2

Location Southwest Oregon, 11 miles southeast 

of Ashland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 220 $37,000

Purpose Acquire parcels of private property 

containing the tread of the Pacific Crest 

National Scenic Trail. The parcels lie in 

the vicinity of Cascade- Siskiyou 

National Monument.

Exchange20 $0

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Three parcels are available from highlymotivated willing sellers. The parcels 

are threatened with rural residential 

development and use which would be 

incompatible with the Trail.

Purchase 271 $542,000

Pending Future Action

Method Acres1 Cost ($)

Pending 3,871 $3,344,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Pacific Forest Trust.

Cooperators Pacific Crest Trail Association, The Conservation Fund, The Wilderness Society, 

Rocky Mountain Elk Foundation, Soda Mountain Wilderness Council, Friends of the 

Cascade- Siskiyou National Monument, the Southern Oregon Lands Conservancy.

Project 

Description

From scorching desert valleys in Southern California to rain forests in the Pacific 

Northwest, the 2,663-mile long Pacific Crest National Scenic Trail (NST) offers hikers 

and equestrians a unique, varied experience from Mexico to Canada through three 

western states. It reveals the beauty of the desert, unfolds the glaciated expanses of 

the Sierra Nevada, and provides commanding vistas of volcanic peaks and glaciers in 

the Cascade Range. The trail also passes through historic mining sites and evidence 

of man’s endless quest for natural resources.

The Pacific Crest NST was congressionally designated a National Scenic Trail in 1968. 

Thousands of hikers and equestrians enjoy this national treasure each year. Some 

only travel a few miles, while others complete every mile in a single season. About 300 

hikers attempt to cover the full length of the Pacific Crest NST each year.

The BLM-managed portion of the Pacific Crest NST crosses approximately 50 parcels 

of private property in Oregon, totaling over 7,700 acres. The request focuses on three 

parcels of private land immediately in the vicinity of Cascade-Siskiyou National 

Monument. Numerous recent purchases within Cascade-Siskiyou National Monument 

have included portions of the Pacific Crest NST.

O&M Cost Estimated “start-up” cost: $1,000. Estimated “annual” maintenance: $10,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 27

Lewis and Clark National Historic Trail

DISCRETIONARY

MONTANA Chouteau County Congressional District: 1

Location Central Montana, 75 miles northeast of 

Great Falls on the Missouri River.

Acquired to Date

Method Acres1 Cost ($)

Purchase 7,844 $3,707,000

Purpose Protect the historic landscape and 

resources while enhancing recreational 

opportunities for Wild and Scenic River 

users.

Exchange2110 $28,000

Donation20 $0

Other 1,915 $407,000

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Opportunity to acquire a property in a 

single ownership facing potential threat 

of rural residential and/or recreational 

development.

Purchase 2,385 $1,032,000

Pending Future Action

Method Acres1 Cost ($)

Pending 13,851 $14,148,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund (TCF).

Cooperators Montana Wildlife Federation, Montana Wilderness Association, Montana Preservation

Alliance, Lewis and Clark Trust, Inc., Friends of the Missouri Breaks Monument.

Project 

Description

The tread of the 3,700-mile long Lewis and Clark National Historic Trail and the 

riparian corridor of the 149-mile free-flowing Upper Missouri National Wild and Scenic 

River are historically braided through this area of central Montana. The landscape 

contains a spectacular array of biological, historical, geological, cultural, and wildlife 

resources in a remote location that offers opportunities for solitude. This isolation 

results in unsoiled, natural settings that form a backdrop for outstanding recreational 

and cultural tourism opportunities. The remote nature of this segment of the Missouri 

River has buffered it from most human influence and maintains the same vistas 

experienced by the Lewis and Clark expedition in 1805 and 1806. Acquisition of 

riverfront and breaks/upland property will preserve the scenic beauty and wild 

experience of the area in perpetuity.

This proposal would acquire a 2,385-acre conservation easement to preserve the 

scenic and cultural landscape within the "White Cliffs" area of the river, an extremely 

sensitive visual corridor. Acquisition would eliminate the threat of development of over 

a mile of river frontage, consolidate isolated tracts of BLM-managed public land and 

join public lands with State of Montana lands. Being highly suited for development, 

protection of the scenic values and cultural landscape are among the highest priorities 

within the Wild and Scenic River corridor.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $5,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 28 Chapter VIII – Land Acquisition

McInnis Canyons National Conservation Area

DISCRETIONARY

COLORADO Mesa County Congressional District: 3

Location West Central Colorado, 20 miles west 

of Grand Junction.

Acquired to Date

Method Acres1 Cost ($)

Purchase 7,014 $4,459,000

Purpose Acquisition of a critical inholding for 

endangered fish habitat preservation, 

cultural, riparian and scenic resource 

protection and recreational opportunity 

enhancement.

Exchange2114 $74,214

Donation20 $0

Other 0 $0

Partners 107 $830,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

A Colorado River frontage parcel within 

the NCA boundary facing threats from 

rural residential or commercial 

development, is available.

Purchase 56 $210,000

Pending Future Action

Method Acres1 Cost ($)

Pending 400 $2,515,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators National Park Service, Colorado Department of Natural Resources, Great Outdoors

Colorado, Mesa County Riverfront Commission, City of Fruita.

Project 

Description

Straddling a 23-mile stretch of the Colorado River within Colorado and Utah, the 

122,300- acre McInnis Canyons National Conservation Area contains a multitude of 

nationally significant resources. Outstanding scenery, characterized by towering red 

sandstone monoliths and deep, sheer-walled canyons provides a stunning backdrop 

for the NCA's 100,000 annual visitors. The NCA's diverse landscape supports a 

variety of wildlife populations, including numerous threatened and endangered 

species. Popular recreational opportunities within the NCA include floating, mountain 

biking, and hiking. The 1.5 mile "Trail Through Time", administered by the BLM and the 

Museum of Western Colorado, interprets fossilized dinosaur remains found in a 140 

million year old quarry.

The McInnis Canyons NCA shares its eastern boundary with the 20,454-acre Colorado 

National Monument, administered by the National Park Service. The 75,500-acre Black 

Ridge Canyons Wilderness lies within the boundary of the NCA and contains one of 

the highest concentrations of natural arches in the world. Crossing 142 miles of desert 

sandstone and shale canyon between Loma, CO (15 miles west of Grand Junction) 

and Moab, UT, 25 miles of the internationally renowned Kokopelli Mountain Bike Trail, 

pass through McInnis Canyons NCA.

The 56-acre Gibson property lies in a floodplain along the Colorado River in Ruby 

Canyon, containing over one-half mile of river frontage. This section of the Colorado 

River is listed as critical habitat for four federally endangered fish species. Acquisition 

of this property would preserve cultural, riparian and scenic resource values, provide 

recreational access from the Colorado River, and protect the area from residential or 

commercial development which would be incompatible with the management 

objectives of the adjacent NCA lands.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $2,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 29

Dominguez-Escalante National Conservation Area

DISCRETIONARY

COLORADO Mesa County Congressional District: 3

Location West central Colorado, 8 miles south of 

Grand Junction.

Acquired to Date

Method Acres1 Cost ($)

Purchase 825 $3,621,500

Purpose Acquisition of a critical inholding for 

endangered fish habitat preservation, 

cultural, riparian and scenic resource 

protection and recreational opportunity 

enhancement.

Exchange20 $0

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

One parcel of private land with 

Gunnison River frontage, within the 

boundaries of the NCA. Available for 

purchase from a willing seller.

Purchase 144 $288,000

Pending Future Action

Method Acres1 Cost ($)

Pending 7,106 $13,832,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Western Rivers Conservancy.

Cooperators U.S. Fish and Wildlife Service, Colorado Division of Wildlife, Colorado Environmental 

Coalition, American Rivers, Audubon Society, Colorado River Outfitters Association, 

Trout Unlimited.

Project 

Description

The 210,000-acre Dominguez-Escalante NCA, encompassing a 66,000-acre 

wilderness area, was established to protect its geological, cultural, paleontological, 

wilderness, recreation, wildlife, riparian, and scenic values. Spectacular red rock 

canyons and cliffs covered in pinion juniper forests hold geological and paleontological 

resources spanning 600 million years, as well as many cultural and historic sites. The 

Escalante, Cottonwood, Little and Big Dominguez Creeks drain the eastern 

Uncompahgre Plateau into the nearly 30 miles of the Gunnison River that flow through 

the NCA. The Gunnison River is designated critical habitat for two endangered fish 

species. Threatened plant species, and rare and diverse wildlife reside here, including 

desert bighorn sheep, mule deer, golden eagle, mountain lion, black bear and elk. The 

area is bounded by the BLM's Bangs Canyon Special Recreation Management Area 

and the Uncompahgre National Forest, and encompasses and adjoins the Escalante 

State Wildlife Area.

The 144-acre Massey property stretches along 1.8 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 Colorado Pikeminnow and Razorback Sucker. 

The property has the potential to provide important habitat for two BLM sensitive 

species, the Roundtail Chub and Bald Eagle, as well as Yellow Billed Cucckoo, a 

candidate species. This parcel also contains visible remnants of the Denver & Rio 

Grande Western railroad, a site of historical significance in western Colorado, as well 

as riparian and scenic resource values.

O&M Cost Estimated “start-up” cost: $2,000. Estimated “annual” maintenance: $2,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 30 Chapter VIII – Land Acquisition

Ironwood Forest National Monument

DISCRETIONARY

ARIZONA Pima County Congressional District: 7

Location Southeast Arizona, approximately 25 

miles northwest of Tucson.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 $0

Purpose To prevent residential development and 

mining within Ironwood Forest National 

Monument, and provide long-term 

protection of ecosystem, open space, 

species and watershed values.

Exchange241 $24,500

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

One inholding parcel available from a 

highly-motivated willing seller. 

Acquisition of this parcel would 

consolidate land ownership and further 

the protection of Monument objects.

Purchase 620 $950,000

Pending Future Action

Method Acres1 Cost ($)

Pending 5,129 $13,070,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Arizona Land and Water Trust.

Cooperators Tohono O’odham Indian Nation, Pima County, National Trust for Historic Preservation, 

Friends of Ironwood Forest.

Project 

Description

Taking its name from one of the longest living trees in the Arizona desert, the 129,000-

acre Ironwood Forest National Monument is a true Sonoran Desert showcase. The 

Ironwood is a very long-lived tree, with some specimens estimated to be more than 

800 years old. Ironwood is a keystone species because it provides a nursery 

environment of shade and protection that enables young seedlings of other species to 

become established despite the harsh desert climate, where night-time lows can 

exceed 105°F. Studies by the Arizona- Sonora Desert Museum have documented 560 

plant species. Resident birdwatchers have documented more than 80 species of 

migratory and non-migratory birds.

This proposal involves the acquisition of one property. The parcel has potential for 

residential development, although the local economic downturn has prompted the 

landowner to explore other selling options. This is a pristine tract that possess natural 

resources that are characteristic of the Monument. The 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, and was listed as 

endangered in 1976 and has an approved recovery plan. More than 200 Hohokam 

and Paleoindian archaeological sites dated between 600 and 1450 (including many 

petroglyphs) have been identified nearby in the Monument, and some are likely to 

occur on this tract. Purchase of the property would improve future access to Monument 

lands, increase recreational amenities, protect plant and animal habitat, and limit the 

rapidly encroaching rural residential development occurring in the area.

The Arizona Land and Water Trust has been conducting pre-purchase actions within 

the Monument after receiving favorable support from the BLM.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 31

Rio Grande del Norte National Monument

DISCRETIONARY

NEW MEXICO Taos County Congressional District: 3

Location Northern New Mexico, approximately

30 miles northwest of Taos.

Acquired to Date

Method Acres1 Cost ($)

Purchase 17,228 $21,000,000

Purpose Acquire private inholdings within the 

Monument, preserve traditional uses, 

improve recreation & tourism, protect 

prehistoric human habitation sites, 

secure connectivity to the Rio Grande 

Wild & Scenic Corridor.

Exchange216,032 $6,412,800

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

One large parcel within the Monument 

faces immediate threat of residential 

development. Landowner is interested 

in selling and NGO’s are engaged.

Purchase 2,872 $2,900,000

Pending Future Action

Method Acres1 Cost ($)

Pending 16,536 $16,548,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Trust for Public Land, the Rocky Mountain Elk Foundation.

Cooperators New Mexico Department of Game and Fish (NMDGF), Rio Grande del Norte Coalition, 

New Mexico Wilderness Alliance, New Mexico Wildlife Federation, The Wilderness 

Society, Trout Unlimited, and Backcountry Hunters & Anglers.

Project 

Description

On March 25, 2013 President Obama designated approximately 242,555 acres as the Rio 

Grande del Norte National Monument. Private inholdings within the Monument are 

vulnerable to increasing residential and “off grid” developments. Acquisition of this

inholding parcel would enhance BLM’s ability to protect fragile cultural, biological and 

scenic resources within the national Monument, which contains the Taos Plateau ACEC 

and Rio Grande Wild & Scenic Corridor, to secure and increase traditional and recreational 

access, and prevent fragmentation of a vital interstate wildlife migration corridor and crucial 

winter range. Cultural significance of the area dates back 14,000 years to the Pleistocene 

era, when native hunters first followed the massive migrating herds of Mammuthus 

primigenius (wooley mammoth) and Bison antiquus (mega bison), into the region. The 

Plateau is rife with remains of the earliest known human cultures in the hemisphere with 

petroglyphs, tipi rings, wickiup structures, arrow heads, and pottery shards scattered across 

the landscape. Continuing archaeological investigation has documented over 500 recorded 

sites. Native tribal members and descendants of Hispanic settlers continue to use these 

lands as important areas for hunting, native plant and fire-wood gathering, and grazing. 

Hunting, camping, wildlife viewing, fishing and renowned whitewater rafting contribute 

much-needed economic revenue to nearby rural communities. Access to the interior of the 

Monument and preservation of the rugged, wide-open landscape and vistas would be 

preserved through this acquisition. Acquisition would also protect habitat for species of 

Greatest Conservation Need listed in the Comprehensive Wildlife Conservation Strategy for 

NM; Gunnison’s Prairie dog, an ESA Candidate Species, loggerhead shrike and burrowing 

owl. The NMDGF identified the Taos Plateau as the most important winter range habitat for 

elk populations moving between Colorado and New Mexico. Up to 10,000 elk winter on the 

plateau each year. Mule deer, pronghorn and wild sheep also depend on key habitat 

resources classified for protection in the NM Comprehensive Wildlife Conservation Strategy 

(sagebrush shrubland, mixed conifer forest/woodland and wet meadow).

O&M Cost Estimated “start-up” cost: $1,000. Estimated “annual” maintenance: $5,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 32 Chapter VIII – Land Acquisition

Cascade-Siskiyou National Monument

DISCRETIONARY

OREGON Jackson County Congressional District: 2

Location Southwest Oregon, 11 miles southeast 

of Ashland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 8,538 $11,873,684

Purpose Consolidate checkerboard land 

ownership pattern within the Monument 

to conserve and restore native and 

endemic plants and habitats within the 

greater Klamath- Cascade eco-region.

Exchange20 $0

Donation20 $0

Other 147 $66,500

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Acquisition of key parcels from willing 

sellers in order to increase the 

connectivity of protected monument 

lands and biologic, geolgic and 

hydrologic resources.

Purchase 720 $906,000

Pending Future Action

Method Acres1 Cost ($)

Pending 23,237 $24,517,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund, The Pacific Forest Trust.

Cooperators The Wilderness Society, Rocky Mountain Elk Foundation, Pacific Crest Trail 

Association, Soda Mountain Wilderness Council, Friends of the Cascade-Siskiyou 

National Monument, Southern Oregon Lands Conservancy.

Project 

Description

Fir forests, oak groves, wildflower meadows and steep canyons make the 85,105-acre 

Cascade-Siskiyou National Monument (CSNM) an ecological wonder, with biological 

diversity unmatched in the Cascade Range. A tremendous variety of plants and 

animals are found amidst the Monument’s towering forests, sunlit groves, wildflowerstrewn meadows, and steep canyons. The Monument is a bird sanctuary, with more 

than 200 species identified, including the Northern Spotted Owl, the Great Gray Owl, 

the Peregrine Falcon and the Willow Flycatcher.

The properties proposed for acquisition include a mix of Douglas-fir, ponderosa pine, 

other conifers and oak species. They also contain alpine meadows supporting 

wildflowers including the rare Greene’s Mariposa Lily. The parcels are bordered by 

BLM-identified Old Growth Emphasis and Diversity Emphasis Areas including Soda 

Mountain Wilderness, and provide important connectivity within the Monument’s 

ecosystem. Several parcels make up the “land bridge” between the mountain systems 

and the Eco-regions. Multiple properties include cold-water springs containing rare and 

endemic snails. The CSNM provides habitat for three endemic bureau sensitive fish 

species: Jenny Creek suckers, the speckled dace and a long-isolated stock of redband 

trout. The lands support populations of white-headed woodpecker, western pond turtle 

and beaver.

Several tracts include, abut, or are within the viewshed of a popular section of the 

2,638- mile Pacific Crest National Scenic Trail (NST). The Pacific Crest NST acts as 

the “gateway” to the Monument from Interstate 5.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $2,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 33

Santa Rosa and San Jacinto Mountains National Monument

MANDATORY

CALIFORNIA Riverside County Congressional District: 36

Location Southern California, directly south and 

west of Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 18,888 $15,500,000

Purpose Conserve significant scenic, 

recreational, and wilderness resources 

within the Santa Rosa and San Jacinto 

Mountains National Monument (NM). 

Increase recreational access/public use.

Exchange23,672 $2,225,000

Donation21,267 $1,600,000

Other 0 $0

Partners 48,862 $50,000,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Conserve significant scenic, 

recreational, and wilderness resources 

within the Santa Rosa and San Jacinto 

Mountains National Monument (NM). 

Increase recreational access/public use.

Purchase 2,664 $4,824,000

Pending Future Action

Method Acres1 Cost ($)

Pending 22,651 $21,176,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Friends of the Desert Mountains, Coachella Valley Mountains Conservancy.

Cooperators U.S. Fish and Wildlife Service, U.S. Forest Service, California Department of Fish and 

Game, Coachella Valley Conservation Commission, Cities of Palm Desert and Palm 

Springs, Resources Legacy Fund Foundation, Agua Caliente Band of Cahuilla Indians.

Project 

Description

Providing a rugged backdrop to the gateway communities of Palm Springs, Palm 

Desert and La Quinta, the Santa Rosa and San Jacinto Mountains National Monument 

hosted over 500,000 visitors in 2012. However, rapid urbanization, immediately 

adjacent to the Monument, ironically is threatening the tremendous scenic and wildlife 

resource values, which helped to establish these resort communities in the early 

1900’s.

Encompassing 272,000 acres, the Santa Rosa and San Jacinto Mountains National 

Monument is a series of steep escarpments, ranging from sea level to nearly 11,000 

feet in elevation. This undeveloped “island” is home to over 600 animal and plant 

species, residing within several distinct climatic zones. Numerous threatened and 

endangered species, including one of the nation’s largest herds of Peninsular bighorn 

sheep, the least Bell’s vireo, populations of desert tortoise and desert slender 

salamander, and unique fan palm oases, are found among the area’s perennial 

streams, springs and seeps. The Monument is within the Coachella Valley Multiple 

Species Habitat Conservation Plan.

The Monument is co-administered by the BLM and Forest Service (64,400 acres of the

Monument lie within the San Bernardino National Forest). Three Wilderness areas, the

94,989-acre Santa Rosa Mountain Wilderness, administered by BLM, and the 19,695-

acre Santa Rosa Wilderness and a portion of the 33,177-acre San Jacinto Wilderness, 

administered by the Forest Service are imbedded within the Monument boundary. The

2,683-mile Pacific Crest National Scenic Trail passes through the Monument.

O&M Cost Estimated “start-up” cost: $40,000. Estimated “annual” maintenance: $5,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 34 Chapter VIII – Land Acquisition

Pacific Crest National Scenic Trail (California)

MANDATORY

CALIFORNIA Riverside County Congressional District: 45

Location Southern California, 20 miles northwest 

of Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 16,000 $19,185,000

Purpose Acquire four parcels containing the 

tread of the Pacific Crest National 

Scenic Trail and preservation of trail 

viewshed.

Exchange222,000 $28,760,000

Donation23,900 $7,665,000

Other 600 $1,000,000

Partners 3,400 $7,197,090

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

The parcels have been pre- purchased 

and held by Friends of the Desert 

Mountains for resale to BLM. The 

parcels are threatened with renewable 

energy development and associated 

facilities.

Purchase 792 $1,511,000

Pending Future Action

Method Acres1 Cost ($)

Pending 63,848 $45,419,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Friends of the Desert Mountains.

Cooperators Pacific Crest Trail Association, Back Country Horseman's Association, Endangered 

Habitats League, Wildlands Conservancy, Coachella Valley Mountains Conservancy.

Project 

Description

From scorching desert valleys in Southern California to rain forests in the Pacific 

Northwest, the 2,663-mile long Pacific Crest National Scenic Trail (NST) offers hikers 

and equestrians a unique, varied experience from Mexico to Canada through three 

western states. It reveals the beauty of the desert, unfolds the glaciated expanses of 

the Sierra Nevada, and provides commanding vistas of volcanic peaks and glaciers in 

the Cascade Range. The trail also passes through historic mining sites and evidence 

of man’s endless quest for natural resources.

The Pacific Crest NST was congressionally designated a National Scenic Trail in 1968. 

Thousands of hikers and equestrians enjoy this national treasure each year. Some 

only travel a few miles, while others complete every mile in a single season. About 300 

hikers attempt to cover the full length of the Pacific Crest NST each year. In California, 

hikers and riders often must cover 20-30 miles of trail between water sources.

Located within driving distance of San Diego and Los Angeles, the southern reaches of 

the Pacific Crest NST is both easily accessible and blissfully wild at the same time. The 

Pacific Crest NST departs from the Mexican border near the small town of Campo.

O&M Cost Estimated “start-up” cost: $15,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 35

San Sebastian Marsh/San Felipe Creek Area of Critical 

Environmental Concern

MANDATORY

CALIFORNIA Imperial County Congressional District: 51

Location Southern California, 30 miles northwest 

of El Centro.

Acquired to Date

Method Acres1 Cost ($)

Purchase 356 $99,000

Purpose Protect and preserve a desert riparian 

ecosystem which provides habitat for 

endangered species, a key wildlife 

corridor and ecological processes. 

Consolidate federal ownership.

Exchange20 $0

Donation21,133 $285,000

Other 80 $36,000

Partners 1,213 $320,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Complete acquisition of a 4,300-acre 

parcel which is currently available for 

purchase in the Area of Critical 

Environmental Concern (ACEC).

Purchase 3,457 $1,367,000

Pending Future Action

Method Acres1 Cost ($)

Pending 2,483 $1,182,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Trust for Public Land.

Cooperators California Department of Fish and Game, U.S. Fish and Wildlife Service, U.S. Bureau 

of Reclamation, U.S. Geological Survey, University of California at Davis.

Project 

Description

The San Sebastian Marsh/San Felipe Creek ACEC is located in western Imperial 

County and is situated in a shallow basin varying in width from a few hundred feet to 

over a half of a mile, which drains northeast into the Salton Sea. This unique, waterbased habitat along San Felipe Creek has supplied a permanent, dependable source 

of water for people and wildlife since ancient times. The marsh was a stopping place 

for the Spanish explorer de Anza, who named it after his Indian guide Sebastian 

Tarabel.

The marsh is designated critical habitat for the desert pupfish, an endangered species. 

An isolated population of the leopard frog has also been recorded. This area is 

contains a number of BLM sensitive bird species and a total of 88 different bird species 

has been observed here. Because of its importance in sustaining this unique 

marshland environment. San Felipe Creek is a registered National Natural Landmark. 

San Felipe Creek has also been designated an Area of Critical Environmental Concern 

(ACEC).

The area around the creek and marsh are easily damaged and very sensitive. The 

marsh is closed to vehicle use, with closure of boundaries clearly posted. However, 

because the land ownership pattern is a checkerboard, managing this special habitat is 

very challenging. Land acquisitions can greatly assist in our management of this 

ACEC. San Sebastian Marsh is open to hiking and is a popular area for nature study.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 36 Chapter VIII – Land Acquisition

Big Morongo Canyon Area of Critical Environmental 

Concern

MANDATORY

CALIFORNIA Riverside and San 

Bernardino Counties Congressional District: 41

Location Southern California, 20 miles northeast 

of Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 6,150 $1,944,500

Purpose Protect and preserve a desert riparian 

ecosystem which provides habitat for 

endangered species, a key wildlife 

corridor, and ecological processes. 

Consolidate federal ownership/improve 

public access.

Exchange20 $0

Donation22,350 $700,000

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

A major inholding has recently been 

acquired by Friends of the Desert 

Mountains for resale to BLM.

Purchase 1,213 $800,000

Pending Future Action

Method Acres1 Cost ($)

Pending 1,565 $2,800,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Friends of the Desert Mountains.

Cooperators National Park Service, Coachella Valley Mountains Conservancy, California 

Department of Fish and Game, San Bernardino County Parks, City of Desert Hot 

Springs, The Wildlands Conservancy.

Project 

Description

The 31,000-acre Big Morongo Canyon Area of Critical Environmental Concern (ACEC) 

is a biologically rich area within the Little San Bernardino Mountains. Located just east 

of Highway 62 and north or Interstate 10, it is noted for its high species diversity, birdwatching opportunities, and recreational trails. Annual visitation is approximately 

60,000 persons per year.

Big Morongo Canyon, in the heart of the ACEC, includes a lush desert oasis and one 

of the largest cottonwood-willow riparian and marsh habitats in the California desert.

The proposed acquisitions would conserve significant habitat for rare and endangered 

species, ecological processes, and a key wildlife corridor between the Little San 

Bernardino and San Bernardino Mountains. Species include the threatened desert 

tortoise, endangered triple-ribbed milkvetch and the BLM sensitive Little San 

Bernardino Mountains linanthus. The ACEC serves as a lambing and watering area 

for the desert bighorn sheep – the wildlife corridor is an annual migration route.

This acquisition is part of a larger initiative by the Coachella Valley Conservation 

Commission and others to acquire a number of parcels in and around the ACEC to 

meet important Coachella Valley Multiple Species Habitat Conservation Plan goals.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 37

Upper Snake/South Fork Snake River Area of Critical

Environmental Concern/Special Recreation Management Area

MANDATORY

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 10,698 $30,227,907

Purpose Conserve and enhance significant 

scenic, recreational, and wildlife 

resources within the Snake River 

corridors, predominately through the 

acquisition of conservation easements.

Exchange240 $40,000

Donation20 $3,455,550

Other 1,563 $4,665,444

Partners 10,233 $17,644,862

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing immediate 

threat from rural residential and resort 

development. Sustaining historic family 

farming/ranching operations is a priority.

Purchase 733 $1,900,000

Pending Future Action

Method Acres1 Cost ($)

Pending 3,926 $11,000,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund, Teton Regional Land Trust, The Nature Conservancy.

Cooperators Local county and municipal support, Idaho Department of Fish and Game, ShoshoneBannock Tribes, Bonneville Power Administration, Ducks Unlimited, Trout Unlimited, 

Henrys Fork Foundation, Henrys Fork Legacy Project.

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. It is considered Idaho's 

#1 Priority Wetland based on resource values and threats to the river (Idaho Parks & 

Recreation report). 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 including habitat for the expanding 

Yellowstone National Park grizzly bear population, a Federally threatened species. The 

area provides crucial habitat for 126 bird species, including the majority of Idaho’s bald 

eagle production and has been designated as a Nationally Important Bird Area.

The first World Fly Fishing Championship in North America took place on the South 

Fork in 1997. Diverse water based 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 income. The 

scope of the project increased dramatically as a result of enormous public support and 

the residual impact from the 1997 100-year flood event. The project shares a 

contiguous boundary with the Caribou- Targhee National Forest, administered by the 

Forest Service, and serves as a national model for land conservation, strategically 

utilizing conservation easements in an effort to preserve the unique values of this area.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $5,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 38 Chapter VIII – Land Acquisition

John Day National Wild and Scenic River/ South Fork John 

Day National Wild and Scenic River

MANDATORY

OREGON Wheeler, Gilliam, Sherman, and 

Grant Counties Congressional District: 2

Location North central Oregon, 95 miles 

southeast of Portland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 11 $40,000

Purpose Conserve significant scenic, recreation, 

fisheries, wildlife, cultural, 

paleontological and botanical values. 

Increase recreational access.

Exchange20 $0

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties threatened with 

commercial use, residential 

development and seasonal rural 

residential development.

Purchase 1,219 $2,250,000

Pending Future Action

Method Acres1 Cost ($)

Pending 365 $600,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Trust for Public Land, Western Rivers Conservancy.

Cooperators Oregon Parks and Recreation Department, Oregon Department of Fish & Wildlife, 

Oregon Watershed Enhancement Board, Gilliam and Sherman Counties Soil & Water 

Conservation Districts, Lower John Day Working Group.

Project 

Description

The John Day River (JDR) is the third longest free-flowing river in the contiguous 

United States. In 1988, Congress designated 147 of its 281 miles as the John Day 

National Wild and Scenic River (JDNWSR). The 6,382-acre Spring Basin Wilderness 

was created in March 2009 and is bordered by the JDNWSR. The wilderness 

comprises rugged cliffs, remote canyons and colorful geologic features. Common 

wildlife species in the area include mule deer, golden eagle, prairie falcon, bobcat, 

mountain bluebird and meadowlark.

The JDR is the Columbia Basin's most biologically diverse river system with the largest 

native fish populations in Oregon, including Chinook salmon, Mid-Columbia Steelhead 

and Bull Trout; both listed as Threatened. The system includes the mainstem and its 

North, Middle and South Forks and covers more than 500 river miles. The JDR and its 

tributaries have been identified as a salmon stronghold and key for recovery of 

important fish populations. The landscape also provides enhanced opportunities for 

bats, neo-tropical and resident birds and dispersal territories for wide-ranging species 

like elk, mule deer and wolverine.

The project area has several Congressional and administrative designations including: 

the newly designated Spring Basin Wilderness, seven Wilderness Study Areas, the 

John Day and South Fork JDNWSR, State Scenic Waterways, State Wildlife 

Management Areas along the lower mainstem and along the South Fork and the John 

Day Fossil Beds National Monument (managed by the National Park Service). 

Acquisition of the proposed parcels will benefit habitat and also ensure public access 

to thousands of acres of public land for a diverse range of highly desirable recreational 

opportunities.

O&M Cost Estimated “start-up” cost: $20,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 39

Sandy River Area of Critical Environmental Concern

Oregon National Historic Trail

DISCRETIONARY

OREGON Clackamas and Multnomah 

Counties Congressional District: 3

Location Northwest Oregon, 20 miles southeast 

of Portland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 3,150 $16,883,000

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.

Exchange23,548 $15,761,730

Donation20 $0

Other 0 $0

Partners 1,500 $6,660,115

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing immediate 

threat from commercial and rural 

residential development and 

subdivision, and degrading land use 

practices.

Purchase 227 $2,500,000

Pending Future Action

Method Acres1 Cost ($)

Pending 450 $4,000,000

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.

Project 

Description

A breath-taking scenic corridor immediately east of metropolitan Portland, the Sandy 

and Salmon Rivers descend from the forested slopes of Mount Hood, harboring a rich 

diversity of animal and plant populations, within secluded riparian and wetland areas. 

Multiple threatened salmonid species, including Lower Columbia Chinook and Coho 

salmon and Steelhead use these turbulent waters for spawning and rearing their young 

before returning to the Pacific Ocean via the Columbia River. Old growth stands of 

Douglas fir contain prime habitat for the threatened northern spotted owl.

The Sandy River Area of Critical Environmental Concern (ACEC) project offers 

exceptional recreational opportunities for fishing, hiking, wildlife viewing, nature study, 

and non- motorized boating or floating. The project is easily accessible from the 

Portland Metro area, the Northwest’s second largest population center.

The 29,000-acre Sandy River ACEC project 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.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $1,500.
2015 Budget Justifications Bureau of Land Management

Page VIII - 40 Chapter VIII – Land Acquisition

Lewis and Clark National Historic Trail

MANDATORY

MONTANA Chouteau County Congressional District: 1

Location Central Montana, 75 miles northeast of 

Great Falls on the Missouri River.

Acquired to Date

Method Acres1 Cost ($)

Purchase 7,844 $3,707,000

Purpose Protect the historic landscape and 

resources while enhancing recreational 

opportunities for Wild and Scenic River 

users by securing a primary boat take 

out site and adding a third river 

campground.

Exchange2110 $28,000

Donation20 $0

Other 1,915 $407,000

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Opportunity to acquire a property in a 

single ownership facing potential threat 

of rural residential and/or recreational 

development.

Purchase 1,406 $1,148,000

Pending Future Action

Method Acres1 Cost ($)

Pending 14,830 $14,032,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund (TCF).

Cooperators Montana Wildlife Federation, Montana Wilderness Association, Montana Preservation

Alliance, Lewis and Clark Trust, Inc., Friends of the Missouri Breaks Monument.

Project 

Description

The tread of the 3,700-mile long Lewis and Clark National Historic Trail and the 

riparian corridor of the 149-mile free-flowing Upper Missouri National Wild and Scenic 

River are historically braided through this area of central Montana. The landscape 

contains a spectacular array of biological, historical, geological, cultural, and wildlife 

resources in a remote location that offers opportunities for solitude. This isolation 

results in unsoiled, natural settings that form a backdrop for outstanding recreational 

and cultural tourism opportunities. The remote nature of this segment of the Missouri 

River has buffered it from most human influence and maintains the same vistas 

experienced by the Lewis and Clark expedition in 1805 and 1806. Acquisition of 

riverfront and breaks/upland property will preserve the scenic beauty and wild 

experience of the area in perpetuity.

This proposal would acquire a 2,385-acre conservation easement to preserve the 

scenic and cultural landscape within the "White Cliffs" area of the river, an extremely 

sensitive visual corridor. Acquisition would eliminate the threat of development of over 

a mile of river frontage, consolidate isolated tracts of BLM-managed public land and 

join public lands with State of Montana lands. Being highly suited for development, 

protection of the scenic values and cultural landscape are among the highest priorities 

within the Wild and Scenic River corridor.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 41

McInnis Canyons National Conservation Area

MANDATORY

COLORADO Mesa County Congressional District: 3

Location West Central Colorado, 20 miles west 

of Grand Junction.

Acquired to Date

Method Acres1 Cost ($)

Purchase 7,014 $4,459,000

Purpose Acquisition of a critical inholding for 

endangered fish habitat preservation, 

cultural, riparian and scenic resource 

protection and recreational opportunity 

enhancement.

Exchange2114 $74,214

Donation20 $0

Other 0 $0

Partners 107 $830,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

One Colorado River frontage parcel 

within the NCA boundary and one 

small, highly visible edgeholding 

adjacent to I-70, facing threats from 

rural residential or commercial 

development, are available.

Purchase 181 $1,625,000

Pending Future Action

Method Acres1 Cost ($)

Pending 275 $1,100,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators National Park Service, Colorado Department of Natural Resources, Great Outdoors

Colorado, Mesa County Riverfront Commission, City of Fruita.

Project 

Description

Straddling a 23-mile stretch of the Colorado River within Colorado and Utah, the 

122,300- acre McInnis Canyons National Conservation Area contains a multitude of 

nationally significant resources. Outstanding scenery, characterized by towering red 

sandstone monoliths and deep, sheer-walled canyons provides a stunning backdrop 

for the NCA's 100,000 annual visitors. The NCA's diverse landscape supports a 

variety of wildlife populations, including numerous threatened and endangered 

species. Popular recreational opportunities within the NCA include floating, mountain 

biking, and hiking. The 1.5 mile "Trail Through Time", administered by the BLM and the 

Museum of Western Colorado, interprets fossilized dinosaur remains found in a 140 

million year old quarry.

The McInnis Canyons NCA shares its eastern boundary with the 20,454-acre Colorado 

National Monument, administered by the National Park Service. The 75,500-acre Black 

Ridge Canyons Wilderness lies within the boundary of the NCA and contains one of 

the highest concentrations of natural arches in the world. Crossing 142 miles of desert 

sandstone and shale canyon between Loma, CO (15 miles west of Grand Junction) 

and Moab, UT, 25 miles of the internationally renowned Kokopelli Mountain Bike Trail, 

pass through McInnis Canyons NCA.

The 56-acre Gibson property lies in a floodplain along the Colorado River in Ruby 

Canyon, containing over one-half mile of river frontage. This section of the Colorado 

River is listed as critical habitat for four federally endangered fish species. Acquisition 

of this property would preserve cultural, riparian and scenic resource values, provide 

recreational access from the Colorado River, and protect the area from residential or 

commercial development which would be incompatible with the management 

objectives of the adjacent NCA lands.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $2,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 42 Chapter VIII – Land Acquisition

Ironwood Forest National Monument

MANDATORY

ARIZONA Pima County Congressional District: 7

Location Southeast Arizona, approximately 25 

miles northwest of Tucson.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 $0

Purpose To prevent residential development and 

mining within Ironwood Forest National 

Monument, and provide long-term 

protection of ecosystem, open space, 

species and watershed values.

Exchange241 $24,500

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Two inholding parcels available from 

highly-motivated willing sellers. 

Acquisition of these parcels would 

consolidate land ownership and further 

the protection of Monument objects.

Purchase 629 $1,170,000

Pending Future Action

Method Acres1 Cost ($)

Pending 5,120 $12,850,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Arizona Land and Water Trust.

Cooperators Tohono O’odham Indian Nation, Pima County, National Trust for Historic Preservation, 

Friends of Ironwood Forest.

Project 

Description

Taking its name from one of the longest living trees in the Arizona desert, the 129,000-

acre Ironwood Forest National Monument is a true Sonoran Desert showcase. The 

Ironwood is a very long-lived tree, with some specimens estimated to be more than 

800 years old. Ironwood is a keystone species because it provides a nursery 

environment of shade and protection that enables young seedlings of other species to 

become established despite the harsh desert climate, where night-time lows can 

exceed 105°F. Studies by the Arizona- Sonora Desert Museum have documented 560 

plant species. Resident birdwatchers have documented more than 80 species of 

migratory and non-migratory birds.

This proposal involves the acquisition of one property. The parcel has potential for 

residential development, although the local economic downturn has prompted the 

landowner to explore other selling options. This is a pristine tract that possess natural 

resources that are characteristic of the Monument. The 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, and was listed as 

endangered in 1976 and has an approved recovery plan. More than 200 Hohokam 

and Paleoindian archaeological sites dated between 600 and 1450 (including many 

petroglyphs) have been identified nearby in the Monument, and some are likely to 

occur on this tract. Purchase of the property would improve future access to Monument 

lands, increase recreational amenities, protect plant and animal habitat, and limit the 

rapidly encroaching rural residential development occurring in the area.

The Arizona Land and Water Trust has been conducting pre-purchase actions within 

the Monument after receiving favorable support from the BLM.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 43

Lathrop Bayou Habitat Management Area

MANDATORY

FLORIDA Bay County Congressional District: 2

Location Western Florida, 25 miles east of

Panama City.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 $0

Purpose Protect habitat for the endangered redcockaded woodpecker (RCW) and 

preserve longleaf pine ecosystem from 

rural residential subdivision.

Exchange20 $0

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

The property is currently available from 

St. Joe Timberlands. Partial acquisition 

of this parcel would provide an 

opportunity to consolidate and protect 

the RCW and longleaf pine ecosystem.

Purchase 137 $275,000

Pending Future Action

Method Acres1 Cost ($)

Pending 69 $137,000

1

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 the State of Florida.

Project 

Description

At Lathrop Bayou Habitat Management Area (HMA), the 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 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 & 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 woodpeckers.

The preferred alternative in the draft Southeastern States RMP designates the Lathrop 

Bayou HMA 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.
2015 Budget Justifications Bureau of Land Management

Page VIII - 44 Chapter VIII – Land Acquisition

Cascade-Siskiyou National Monument

MANDATORY

OREGON Jackson County Congressional District: 2

Location Southwest Oregon, 11 miles southeast 

of Ashland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 8,538 $11,873,684

Purpose Consolidate checkerboard land 

ownership pattern within the Monument 

to conserve and restore native and 

endemic plants and habitats within the 

greater Klamath- Cascade eco-region.

Exchange20 $0

Donation20 $0

Other 147 $66,500

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Acquisition of key parcels from willing 

sellers in order to increase the 

connectivity of protected monument 

lands and biologic, geolgic and 

hydrologic resources.

Purchase 3,987 $5,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 19,970 $20,423,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund, The Pacific Forest Trust.

Cooperators The Wilderness Society, Rocky Mountain Elk Foundation, Pacific Crest Trail 

Association, Soda Mountain Wilderness Council, Friends of the Cascade-Siskiyou 

National Monument, Southern Oregon Lands Conservancy.

Project 

Description

Fir forests, oak groves, wildflower meadows and steep canyons make the 85,105-acre 

Cascade-Siskiyou National Monument (CSNM) an ecological wonder, with biological 

diversity unmatched in the Cascade Range. A tremendous variety of plants and 

animals are found amidst the Monument’s towering forests, sunlit groves, wildflowerstrewn meadows, and steep canyons. The Monument is a bird sanctuary, with more 

than 200 species identified, including the Northern Spotted Owl, the Great Gray Owl, 

the Peregrine Falcon and the Willow Flycatcher.

The properties proposed for acquisition include a mix of Douglas-fir, ponderosa pine, 

other conifers and oak species. They also contain alpine meadows supporting 

wildflowers including the rare Greene’s Mariposa Lily. The parcels are bordered by 

BLM-identified Old Growth Emphasis and Diversity Emphasis Areas including Soda 

Mountain Wilderness, and provide important connectivity within the Monument’s 

ecosystem. Several parcels make up the “land bridge” between the mountain systems 

and the Eco-regions. Multiple properties include cold-water springs containing rare and 

endemic snails. The CSNM provides habitat for three endemic bureau sensitive fish 

species: Jenny Creek suckers, the speckled dace and a long-isolated stock of redband 

trout. The lands support populations of white-headed woodpecker, western pond turtle 

and beaver.

Several tracts include, abut, or are within the viewshed of a popular section of the 

2,638- mile Pacific Crest National Scenic Trail (NST). The Pacific Crest NST acts as 

the “gateway” to the Monument from Interstate 5.

O&M Cost Estimated “start-up” cost: $15,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 45

Carrizo Plain National Monument

MANDATORY

CALIFORNIA Kern and San Luis Obispo

Counties Congressional District: 22

Location Central California, 60 miles west of

Bakersfield.

Acquired to Date

Method Acres1 Cost ($)

Purchase 95,040 $22,635,500

Purpose Acquire private inholdings within the 

Carrizo Plain National Monument to 

protect outstanding biological and 

cultural values.

Exchange220,376 $3,224,552

Donation24,367 $1,695,700

Other 0 $0

Partners 9,870 $1,934,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing immediate 

threat from commercial, industrial, rural 

residential and suburban development, 

and unregulated OHV use.

Purchase 240 $300,000

Pending Future Action

Method Acres1 Cost ($)

Pending 18,360 $27,540,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Sequoia Rivers Land Trust, Wildlands Conservancy.

Cooperators Bureau of Reclamation, U.S. Fish and Wildlife Service, California Department of Fish 

and Game, Friends of Carrizo Plain, Southern Sierra Archeological Society, Carrizo 

Plain Native American Advisory Committee, Resources Legacy Fund Foundation.

Project 

Description

The Carrizo Plain National Monument is a majestic 250,000-acre grassland and scenic 

mountainous preserve that contains the last remaining undeveloped remnant of the 

San Joaquin Valley ecosystem. As a result, 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 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 see one of the most spectacular 

sections of the 800-mile long San Andreas Fault with its complex corrugated 

topography along the 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.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $1,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 46 Chapter VIII – Land Acquisition

Upper Missouri National Wild and Scenic River

Lewis and Clark National Historic Trail

MANDATORY

MONTANA Chouteau County Congressional District: 1

Location Central Montana, 75 miles northeast of 

Great Falls on the Missouri River.

Acquired to Date

Method Acres1 Cost ($)

Purchase 7,844 $3,707,000

Purpose Protect the historic landscape and 

multiple resource values while 

enhancing recreational opportunities for 

river users.

Exchange2110 $28,000

Donation20 $0

Other 1,915 $407,000

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Willing seller opportunity for two 

properties facing potential threat of rural 

residential and/or recreational 

development.

Purchase 3,287 $3,408,000

Pending Future Action

Method Acres1 Cost ($)

Pending 12,949 $11,772,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund

Cooperators Montana Wildlife Federation, Montana Wilderness Association, Montana Preservation

Alliance, Lewis and Clark Trust, Inc., Friends of the Missouri Breaks Monument.

Project 

Description

The tread of the 3,700-mile long Lewis and Clark National Historic Trail and the 

riparian corridor of the 149-mile free-flowing Upper Missouri National Wild and Scenic 

River are historically braided through this area of central Montana. The landscape 

contains a spectacular array of biological, historical, geological, cultural, and wildlife 

resources in a remote location that offers opportunities for solitude. This isolation 

results in unsoiled, natural settings that form a backdrop for outstanding recreational 

and cultural tourism opportunities. The remote nature of this segment of the Missouri 

River has buffered it from most human influence and maintains the same vistas 

experienced by the Lewis and Clark expedition in 1805 and 1806. Acquisition of 

riverfront and breaks/upland properties will preserve the scenic beauty and wild 

experience of the area in perpetuity.

The properties are located in an extremely sensitive visual portion of the Wild and 

Scenic River corridor. Prized for development, protection of the scenic values and 

cultural landscape are among the highest priorities in managing of the Wild and Scenic 

River corridor.

O&M Cost Estimated “start-up” cost: $7,500. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 47

Agua Fria National Monument

MANDATORY

ARIZONA Yavapai County Congressional District: 2

Location Central Arizona, 40 miles north of the 

Phoenix metropolitan area.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 $0

Purpose Enhance management efficiency and 

preservation of Monument values and 

objects, including open space, a flowing 

stream, riparian habitat, recreation 

opportunities, and cultural resources.

Exchange260,160 $15,288,000

Donation20 $0

Other 0 $0

Partners 199 $3,300,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

The Cross Y Ranch parcel is a 

significant Monument inholding, and is 

available from a willing seller. The 

parcel is highly threatened by rural 

residential development.

Purchase 621 $3,300,000

Pending Future Action

Method Acres1 Cost ($)

Pending 655 $2,200,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund

Cooperators Arizona Game and Fish Department, U.S. Forest Service, The Trust for Public Land, 

Friends of the Agua Fria. There is strong community and user group support.

Project 

Description

The 71,000-acre Agua Fria National Monument contains one of the most significant 

complexes of late prehistoric pueblo settlement sites in the American Southwest. The 

Monument encases many significant archaeological sites, including distinctive rock art, 

settlements, stone pueblos and clusters of pueblos and forts, all amid visually 

spectacular settings. There is an extraordinary array of biological and scientific 

resources, including riparian areas, upland high-desert grasslands, year-round flowing 

streams, and a 21-mile segment of the Agua Fria River. This segment of the Agua Fria 

River is proposed for designation as a Wild and Scenic River.

This proposal represents the second phase of a two phase attempt to acquire the 

entire 621-acre property remainder. The Cross Y Ranch property includes more than a 

mile of Agua Fria River riparian habitat, and a substantial number of water rights. This 

stretch of the Agua Fria River is habitat for several endangered and State and Bureau 

sensitive species including but not limited to; Gila Chub, Gila Topminnow, Longfin 

Dace, Speckled Dace, Lowland Leopard Frog, Gila Monster, Yellow-billed Cuckoo, and 

Zone-tailed Hawk. The upland portions of the property encompass numerous pueblo 

ruins, rock art sites, and artifact scatters. The property is highly scenic and includes 

dense stands of saguaro cacti, and other rare plant species. Acquisition would 

contribute to maintaining connectivity and resource integrity of important grassland 

habitat types as part of the Central Arizona Grasslands Strategy. The Cross Y Ranch 

acquisition is a high BLM priority due to its natural resource values, new public access 

opportunities, water rights, and the proximity to the Phoenix metropolitan area. The 

Conservation Fund began purchase actions after receiving favorable support from the 

BLM.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 48 Chapter VIII – Land Acquisition

Blanca Wetlands Area of Critical Environmental Concern/ 

Special Recreation Management Area

MANDATORY

COLORADO Alamosa County Congressional District: 3

Location Southern Colorado, approximately

17 miles northeast of Alamosa.

Acquired to Date

Method Acres1 Cost ($)

Purchase 1,115 $1,404,600

Purpose Acquire/restore critical playa wetland 

systems to provide essential wildlife 

habitat to multiple threatened and 

endangered species and offer important 

public recreational opportunities.

Exchange21,269 $10,500

Donation280 $4,600

Other 233 $293,500

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

The Nature Conservancy acquired the 

property nearly a decade ago at the 

request of BLM and has been looking 

for an opportunity for the BLM to 

acquire and manage it.

Purchase 12,838 $6,426,000

Pending Future Action

Method Acres1 Cost ($)

Pending 0 $0

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Nature Conservancy (TNC).

Cooperators National Park Service (NPS), U.S. Fish and Wildlife Service (FWS), Bureau of 

Reclamation (BOR), Colorado Division of Wildlife, Ducks Unlimited, Wetlands Focus 

Area Committee and Intermountain West Joint Venture.

Project 

Description

This project is to acquire land that would assist federal and state agencies in restoring 

and connecting wetland habitat in the San Luis Valley (SLV) of Colorado. Long ago, a

network of playa lakes and marshes shimmered in the desert scrub of the SLV. The 

skies were blackened by thousands of birds drawn to these wetlands for breeding, 

resting, and foraging during their long migrations. Surface water has become way 

over-appropriated and numerous wells have been drilled into the aquifers causing the 

lowering of the SLV’s water table. The effects have now caused these wetlands to 

start disappearing at a rapid rate. State and federal agencies initiated wetland 

restoration efforts in the 1960’s as bird populations were plummeting. A critical 

component of the restoration efforts was the development of the BLM’s Blanca 

Wetlands Area (BWA). BWA is a 10,000 acre Area of Critical Environmental Concern 

(ACEC), a Special Recreation Management Area (SRMA). This is now an Important 

Bird Area in Colorado and a key site for the Intermountain West Joint Venture 

shorebird science team and a nationally significant wildlife resource area.

The diverse wetlands found at BWA provide important habitats for 13 threatened and 

endangered species and 160 species of water birds. This project would fulfill goals 

identified in the Integrated Activity Plan for BWA (1995) by purchasing 12,838 acres of 

land bordering the northern boundary of the site. The parcel is imperative for 

connectivity of wetlands across the SLV and would essentially merge wetlands owned 

by BLM, State of Colorado, NPS, FWS, and TNC. This would also encourage 

management across jurisdictions to achieve broad scale resource objectives. We are 

uniquely situated to succeed in this regard, as we are a Service First community, 

having both the NPS and the USFWS as local Service First partners. TNC acquired 

this property in the 1990’s on behalf of the BLM, and is anxiously awaiting BLM’s 

completion of the transaction.

O&M Cost Estimated “start-up” cost: $75,000. Estimated “annual” maintenance: $40,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 49

Rio Grande del Norte National Monument

MANDATORY

NEW MEXICO Taos County Congressional District: 3

Location Northern New Mexico, approximately

30 miles northwest of Taos.

Acquired to Date

Method Acres1 Cost ($)

Purchase 17,228 $21,000,000

Purpose Acquire private inholdings within the 

Monument, preserve traditional uses, 

improve recreation & tourism, protect 

prehistoric human habitation sites, 

secure connectivity to the Rio Grande 

Wild & Scenic Corridor.

Exchange216,032 $6,412,800

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Seven parcels within the Monument 

face immediate threat of residential 

development. Landowners are 

interested in selling and NGO’s are 

engaged.

Purchase 1,634 $1,660,000

Pending Future Action

Method Acres1 Cost ($)

Pending 17,774 $17,788,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Trust for Public Land, the Rocky Mountain Elk Foundation.

Cooperators New Mexico Department of Game and Fish (NMDGF), Rio Grande del Norte Coalition, 

New Mexico Wilderness Alliance, New Mexico Wildlife Federation, The Wilderness 

Society, Trout Unlimited, and Backcountry Hunters & Anglers.

Project 

Description

On March 25, 2013 President Obama designated approximately 242,555 acres as the Rio 

Grande del Norte National Monument. Private inholdings within the Monument are 

vulnerable to increasing residential and “off grid” developments. Acquisition of this

inholding parcel would enhance BLM’s ability to protect fragile cultural, biological and 

scenic resources within the national Monument, which contains the Taos Plateau ACEC 

and Rio Grande Wild & Scenic Corridor, to secure and increase traditional and recreational 

access, and prevent fragmentation of a vital interstate wildlife migration corridor and crucial 

winter range. Cultural significance of the area dates back 14,000 years to the Pleistocene 

era, when native hunters first followed the massive migrating herds of Mammuthus 

primigenius (wooley mammoth) and Bison antiquus (mega bison), into the region. The 

Plateau is rife with remains of the earliest known human cultures in the hemisphere with 

petroglyphs, tipi rings, wickiup structures, arrow heads, and pottery shards scattered across 

the landscape. Continuing archaeological investigation has documented over 500 recorded 

sites. Native tribal members and descendants of Hispanic settlers continue to use these 

lands as important areas for hunting, native plant and fire-wood gathering, and grazing. 

Hunting, camping, wildlife viewing, fishing and renowned whitewater rafting contribute 

much-needed economic revenue to nearby rural communities. Access to the interior of the 

Monument and preservation of the rugged, wide-open landscape and vistas would be 

preserved through this acquisition. Acquisition would also protect habitat for species of 

Greatest Conservation Need listed in the Comprehensive Wildlife Conservation Strategy for 

NM; Gunnison’s Prairie dog, an ESA Candidate Species, loggerhead shrike and burrowing 

owl. The NMDGF identified the Taos Plateau as the most important winter range habitat for 

elk populations moving between Colorado and New Mexico. Up to 10,000 elk winter on the 

plateau each year. Mule deer, pronghorn and wild sheep also depend on key habitat 

resources classified for protection in the NM Comprehensive Wildlife Conservation Strategy 

(sagebrush shrubland, mixed conifer forest/woodland and wet meadow).

O&M Cost Estimated “start-up” cost: $1,000. Estimated “annual” maintenance: $5,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 50 Chapter VIII – Land Acquisition

Panoche-Coalings Area of Critical Environmental Concern

MANDATORY

CALIFORNIA Fresno County Congressional District: 20

Location Central California, approximately 70 

miles south of San Jose.

Acquired to Date

Method Acres1 Cost ($)

Purchase 6,700 $3,625,000

Purpose Consolidate disbursed ownerships of 

public and private lands to provide 

landscape level connectivity for wildlife 

and the recovery of threatened and 

endangered (T&E) species.

Exchange230,000 $12,000,000

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Fee acquisition opportunity of large 

acreage ranch properties threatened 

with residential, commercial, and 

industrial development, mining,

visual intrusion, and loss of T&E

species habitat.

Purchase 5,417 $3,300,000

Pending Future Action

Method Acres1 Cost ($)

Pending 108,000 $54,000,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Bureau of Reclamation (BOR), Fish and Wildlife Service (FWS), The Nature 

Conservancy

Cooperators National Park Service (NPS), Calif. Department of Fish & Wildlife, Westside Resource 

Conservation District, San Benito Resource Conservation District, Rocky Mountain Elk 

Foundation, Smithsonian Institution, University of California (Berkeley and Santa Cruz).

Project 

Description

These acquisitions represent the next phase of the ongoing San Joaquin Desert Hills 

project, which is intended to create a large contiguous block of protected lands in the 

western San Joaquin Valley and South Diablo Ranges, along with consolidating 

holdings within our Panoche-Coalinga ACEC (PCACEC). The parcels are in nearly 

pristine condition and are maintained as such by a combination of arid conditions and 

grazing regime.

The Martin parcels, contains important habitat for the endangered San Joaquin kit fox 

and giant kangaroo rat, and will continue the work we have conducted with BOR and 

FWS, who have funded $3.4 million for T&E species habitat acquisition in this region 

since 2007. The Ashurst acquisition will protect an important watershed, and in support 

of America Great Outdoors (AGO) will improve access for recreation. These lands are 

within BLM's Clear Creek Management area and provide important habitat for tule elk, 

and connectivity habitat for the San Joaquin kit fox.

The acquisitions will protect an important watershed and ecosystem and are a 

component of a large protected landscape that will preserve wildlife connectivity, 

recreation, and public access in the PCACEC, which encompasses 300,000 acres of 

the San Joaquin Desert ecosystem. This area contributes to protection of a key 

watershed on the west side of the San Joaquin Valley and improvement of riparian 

conditions with an indirect benefit to the San Joaquin River Restoration and Bay-Delta 

Projects, and will fulfill criteria for recovery, including down- and delisting, of a number 

of T&E species. It contributes to the region's status as a Landscape Reserve as 

defined by the 2009 California Climate Change Adaptation Strategy, which required 

contiguous blocks of 150,000 or larger.

O&M Cost Estimated “start-up” cost: $8,000. Estimated “annual” maintenance: $3,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 51

Colorado River Special Recreation Management Area

MANDATORY

COLORADO Eagle County Congressional District: 2

Location Northwest Colorado, approximately

20 miles west of Eagle.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 $0

Purpose Inclusion into the Colorado River 

Special Recreation Management Area 

(SRMA). Conserve and enhance 

significant scenic, recreation, cultural, 

and wildlife/plant resources within the 

project.

Exchange20 $0

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

BLM is managing all 3 properties which 

were purchased by Eagle County Open 

Space funds. The Conservation Fund 

is under contract with Eagle County to 

purchase all 3 properties for later sale 

to BLM.

Purchase 36 $2,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 300 $5,000,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators Eagle County, Town of Gypsum, Great Outdoors Colorado, Colorado Division of Parks 

and Wildlife, Colorado River Outfitters Association, American Rivers, Ducks Unlimited, 

Trout Unlimited, Eagle Valley Land Trust, Eagle River Watershed Council.

Project 

Description

Three highly desirable private parcels (State Bridge, Two Bridges and Dotsero 

Landing) lie within the Colorado River SRMA. A 2-hour drive from Denver, the SRMA is 

a popular destination for rafters, campers, kayakers, paddle boarders and anglers with 

approximately 50,000 visitors annually. The river offers a variety of experiences from 

advanced whitewater in Gore Canyon to family friendly floating.

There are nine developed BLM recreation access sites within the SRMA. River use has 

historically been concentrated upriver of Two Bridges, while the 45-mile stretch from 

Two Bridges to Dotsero Landing has been underutilized due to lack of public access. 

Improved access will help create a valuable new recreational asset. State Bridge (1st 

priority) is adjacent to BLM administered public lands on the south, east and west. Two 

Bridges (2nd priority) adds river access to the 10 mile stretch between State Bridge 

and BLM’s Catamount Recreation site. Eagle County has a recreation lease on the 

adjoining 543-acre State property. Dotsero Landing (3rd priority) provides river access 

at Interstate 70 where the Eagle and Colorado Rivers join.

All sites are day use only and are being managed in accordance with the SRMA 

objectives and eligible Wild and Scenic River Outstanding Remarkable Values. As the 

majority of the river is family friendly, the SRMA is used for school trips and outdoor 

education. These three parcels are available for purchase by BLM for $1,000,000 

under appraised value. Over $830,000 in improvements have recently been made, 

adding developed parking areas, boat launches, and bathroom facilities to each site. In 

2012, Great Outdoors Colorado provided $4 million in state funds to conserve two 

parcels totaling 1,245 acres between Two Bridges and Dotsero, further expanding 

public access to the river.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $25,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 52 Chapter VIII – Land Acquisition

Sands Desert Habitat Management Area

MANDATORY

IDAHO Fremont County Congressional District: 2

Location Southeast Idaho. North and west of

St. Anthony.

Acquired to Date

Method Acres1 Cost ($)

Purchase 2,037 $200,000

Purpose Conserve significant big game migration 

corridors and crucial winter range, key 

year round sage and sharp-tail grouse 

habitat, tremendous hunting 

opportunities, archeological resources.

Exchange280 $40,000

Donation20 $765,000

Other 0 $0

Partners 21,019 $14,035,247

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple willing land owners are seeking 

a conservation alternative for their 

properties to keep them as working 

ranches to ensure they will always 

make a significant wildlife contribution.

Purchase 2,397 $1,850,000

Pending Future Action

Method Acres1 Cost ($)

Pending 10,000 $10,000,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Teton Regional Land Trust, The Nature Conservancy, The Conservation Fund

Cooperators Idaho Department of Fish and Game (IDFG), Henrys Fork Legacy Project (HFLP), 

Rocky Mountain Elk Foundation, Mule Deer Foundation, Doris Duke Charitable 

Foundation, Natural Resource Conservation Service.

Project 

Description

The Sands Desert Habitat Management Area encompasses some of the best 

remaining shrub habitat in the state of Idaho as well as a high profile OHV program on 

active sand dunes. This high quality habitat supports healthy populations of two 

species of national importance: the greater sage-grouse (core habitat) and the 

Columbian sharp-tailed grouse. For Idahoans though, it is best known for its large 

mammal populations; more than 3,000 elk, 1,500 mule deer and 400 moose winter on 

the Sands public rangelands, the IDFG’s 35,000 acre Sand Creek Wildlife 

Management Area (WMA), and the adjacent private property. Much of the wildlife that 

people attribute to Yellowstone National Park and the surrounding National Forest 

lands, leave those public lands in the winter to find refuge from heavy snows at lower 

elevations. On the west side of Yellowstone the best winter refuge is the Sands 

Desert.

While IDFG’s WMA is not small, the lands that have been cobbled together to date are 

somewhat disconnected and do not encompass some of the best habitat. The value of 

this habitat was recognized by in the Idaho Fish and Game Comprehensive Wildlife 

Conservation Strategy, but few opportunities have come about to match willing landowners with funds for habitat conservation. The HFLP is a collaboration of 18 county, 

state and federal agencies and national, regional and local non-profit groups dedicated 

to increasing the rate of conservation in the upper Henrys Fork watershed. Through a 

rigorous prioritization process, the HFLP identified a dozen private parcels near the 

Sand Creek WMA that would dramatically improve the protection offered by the WMA 

and would permanently protect migration corridors leading to the Sands Desert. If 

successful, the effort of the HFLP would ensure the persistence of the large mammals 

that need the WMA in the winter and two grouse species which can be found there 

year-round.

O&M Cost Estimated “start-up” cost: $500. Estimated “annual” maintenance: $500.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 53

Salmon River SRMA/Salmon River Watershed

MANDATORY

IDAHO Lemhi County Congressional District: 2

Location Salmon River SRMA and watershed 

within Lemhi County, Idaho.

Acquired to Date

Method Acres1 Cost ($)

Purchase 1,346 $2,087,850

Purpose Conserve open space and enhance 

significant scenic, recreational and 

wildlife resources within the Salmon 

River watershed through conservation 

easements and fee purchase.

Exchange20 $0

Donation275 $375,000

Other 0 $0

Partners 11,676 $15,937,868

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing potential 

subdivision, protecting historic ranching 

operations, protecting scenic values, 

protecting wildlife migration corridors 

and TE species habitats, and providing 

public access.

Purchase 2,383 $3,725,000

Pending Future Action

Method Acres1 Cost ($)

Pending 296 $825,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Lemhi Regional Land Trust (LRLT), The Nature Conservancy (TNC).

Cooperators Idaho Department of Fish and Game, local County support, State of Idaho, local Trails

Committee.

Project 

Description

The Salmon River, known as the “River of No Return,” provides valuable habitat for 

many fish and wildlife species. Species listed under the ESA relying on this habitat 

include Snake River Chinook salmon, sockeye salmon, steelhead, and bull trout. The 

Lewis and Clark National Historic Trail, Continental Divide National Scenic Trail and 

Nez Perce National Historic Trail corridors are all included within the project area. 

Significant prehistoric and historic cultural resources and traditional cultural places are 

known and documented within project area and they could be evaluated and protected. 

Recreational values include white- water rafting, fishing, hunting, camping, hiking, and 

sight-seeing. Acquisition of land through conservation easements/fee purchase would 

protect the riparian and river habitat from impending private development and keep 

working ranches open spaces, preserving scenic vistas and wildlife migration corridors.

These acquisitions will directly both wildlife habitat and protect an important wildlife 

migration corridor from development, as well as prevent development within 

Designated Critical Habitat for chinook and sockeye salmon, steelhead trout and bull 

trout along the Salmon River SRMA. Three parcels sit at a critical migration bottleneck 

for elk moving from Montana to the southwestern faces of Idaho’s Salmon River to 

winter and serve as transition range for migrating animals. Protection of these 

properties in the form of conservation easements will prevent further subdivision of this 

habitat and will protect the current habitat values of the properties. The remaining 

properties are immediately upstream of properties acquired in a prior LWCF 

submission as well as a BLM river access site, and stop on the Idaho Birding Trail, 

which provides access to waterfowl hunters, fishermen and birdwatchers. One parcel 

would provide access to the Lewis and Clark National Historic Trail and adjacent public 

lands. Additional properties, either adjacent to these or those acquired through 

previous conservation efforts, would provide high priority recreational access.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $1,000.
2015 Budget Justifications Bureau of Land Management

Page VIII - 54 Chapter VIII – Land Acquisition

Chilly Slough / Thousand Springs

Area of Critical Environmental Concern

MANDATORY

IDAHO Custer County Congressional District: 2

Location Chilly Slough / Thousand Springs

Area of Critical Environmental Concern

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 $0

Purpose Conservation & enhancement of one of 

Idaho’s significant wildlife

corridors & habitat areas lying at the 

base of the state’s highest mountain 

range. Crucial wetland adjacent to 

sage-brush steppe habitat.

Exchange20 $0

Donation20 $0

Other 1,028 $1,750,000

Partners 918 $1,560,000

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Private property within the area is for 

sale and has been subdivided 

threatening migratory birds, sensitive 

species habitat including year-round 

sage-grouse use, visual resources, 

cultural sites, & recreation.

Purchase 200 $250,000

Pending Future Action

Method Acres1 Cost ($)

Pending 1,100 $1,500,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators Idaho Department of Fish and Game (IDFG), The Nature Conservancy, Ducks 

Unlimited, Rocky Mountain Elk Foundation, Idaho State Historic Preservation Office.

Project 

Description

Thousand Springs/Chilly Slough is one of the few remaining examples of natural, high 

desert, spring-fed wetlands. Winter snows melt, gather along a range-front fault and feed 

thousands of springs to this area. It is the largest wetland in east-central Idaho and is 

managed jointly by the BLM and the Idaho Fish and Game. Acquisition of the Zollinger 

private parcel is crucial because it encompass the headwaters of the Thousand Springs/ 

Chilly Slough wetlands. Land administered by BLM within the Thousand Springs/Chilly 

Slough wetlands is designated an ACEC and is valued for its diversity of wildlife that use it. 

The 320 acre Zollinger private property falls within the boundary delineated in the BLM 

Thousand Springs/Chilly Slough Habitat Management Plan. Acquisition will assure 

protection of this wildlife migration corridor and year-round habitat. Currently, the Chilly 

Slough Wetland Conservation Area protects almost 2,000 acres (BLM has acquired 1,028 

acres and IDFG has acquired 918 acres) in public ownership. The 1999 BLM Resource 

Management Plan in this area allows for the creation of a wetlands management area of 

approximately 4,400 acres. One hundred and seventy three wildlife species are known to 

use Thousand Springs/Chilly Slough wetlands with 113 of those being birds. These 

wetlands hold a high importance for migratory birds for a refueling spot during their annual 

migration. The riparian edge and adjacent sage-brush steppe habitat have shown to be 

important to sage-grouse throughout the year. Numerous historic and prehistoric 

archeological sites are present in and around the wetlands, and it is highly probable that 

other prehistoric and historic sites are located within these parcels; one prehistoric site is 

already known to exist on these private lands proposed for purchase. The ShoshoneBannock Tribes have expressed interest in using this area for the practice of treatyreserved rights. Recreational opportunities would include bird watching, hiking, fishing, 

canoeing, and historical education. Acquisition of this land through fee purchase would 

help to provide additional access to the wetlands, as well as, provide connectivity between 

publicly managed lands for wildlife conservation.

O&M Cost Estimated “start-up” cost: $2,000. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 55

Oregon National Historic Trail

MANDATORY

IDAHO Blaine County Congressional District: 2

Location Central Idaho, adjacent to Craters of the 

Moon National Monument.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 $0

Purpose Conserve significant big game migration 

corridors and crucial winter range, key 

year round sage-grouse habitat, 

tremendous hunting opportunities, 

archeological and geologic resources.

Exchange20 $0

Donation20 $0

Other 0 $0

Partners 72,529 $42,330,200

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple willing landowners are seeking 

a conservation alternative for their 

properties to keep them as working 

ranches to ensure they will always 

make a significant wildlife contribution.

Purchase 292 $440,000

Pending Future Action

Method Acres1 Cost ($)

Pending 2,220 $2,485,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner Pioneers Alliance/The Conservation Fund, The Nature Conservancy, Wood Rvr Land 

Trust

Cooperators Idaho Department of Fish and Game, National Park Service, Natural Resources

Conservation Service.

Project 

Description

Craters of the Moon National Monument and Preserve (CRMO) protects 464,304 acres 

of National Park Service land in South Central Idaho and the southwestern corner of 

the High Divide Conservation Collaborative. CRMO is a member of the Pioneers 

Alliance, a coalition of ranchers, farmers, local residents, conservationists, agency 

officials and elected officials working together to accomplish common goals in Blaine 

and Butte counties. Conservation easements have been negotiated in both counties to 

protect the open spaces; the abundant wildlife; the access to the mountains, foothills, 

and desert; the agricultural way of life; and the small communities – and to build an 

economically, environmentally and socially sustainable future.

The Pioneers Foothills encompasses intact shrub habitat and provides a migration 

corridor between the Pioneer Mountains, Sawtooth National Forest and CRMO. 

Pronghorn antelope migrate seasonally through the north end of CRMO from the 

Pioneer Mountains to the Birch Creek area approximately 100 miles each way. The 

project area is core habitat for sage-grouse, over 40 sage-grouse leks have been 

monitored in the CRMO. A portion of the Oregon National Historic Trial (i.e., Jeffrey–

Goodale Cutoff) is also within the project area. The Goodale’s Cutoff of the Oregon 

Trail is a 230-mile spur headed north from Fort Hall toward Big Southern Butte, and 

then through the northern part of Craters of the Moon National Monument. The target 

property is located in Blaine County near the community of Carey, Idaho, and has 

tremendous potential for rural residential development. In the last decade, many farms 

and ranches in the vicinity have been subdivided and developed. Recreation use 

within the areas is in high demand due to the magnitude of proposed development of 

the surrounding areas; thus changing and/or increasing the demand, type and intensity 

of recreational use. The CRMO attracted 198,545 visitors during calendar year 2011, 

resulting in visitor spending an estimated $6,821,000, resulting in 81 jobs and a 

$2,940,000 value added to local communities.

O&M Cost Estimated “start-up” cost: $500. Estimated “annual” maintenance: $500.
2015 Budget Justifications Bureau of Land Management

Page VIII - 56 Chapter VIII – Land Acquisition

Madison River Special Recreation Management Area

MANDATORY

MONTANA Madison County Congressional District: 1

Location Southwest Montana, 15 miles south of 

Ennis.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 $0

Purpose Conserve and enhance crucial habitat 

for species restoration, emphasizing 

open space and critical wildlife 

connectivity. Secure scenic, 

wildlife/plant resources, and

enhance recreational opportunities.

Exchange20 $0

Donation20 $0

Other 0 $0

Partners 0 $0

Proposed for FY 2015

Method Acres1 Cost ($)

Purchase

Opportunities

A portion of one inholding property 

available from a highly-motivated willing 

seller on the Madison River. The 

property face potential threat of rural 

residential and/or recreational 

development.

Purchase 386 $868,000

Pending Future Action

Method Acres1 Cost ($)

Pending 1,839 $4,132,000

1

Includes fee and conservation easement interest

2

For donation and exchange “Cost” = “value”

Partner The Rocky Mountain Elk Foundation (RMEF) and The Conservation Fund (TCF)

Cooperators Montana Fish, Wildlife & Parks (MWFP) supports this acquisition as it is consistent with 

their goals and the property lies adjacent to the Wall Creek Wildlife Management Area 

(WMA). The BLM is working with the RMEF to determine additional opportunities for 

partnerships.

Project 

Description

The parcel is within the Greater Yellowstone Ecosystem (GYE), the largest intact ecosystem 

in the lower 48 States. Within the GYE lies the legendary trout waters of the Madison River 

which originate in Yellowstone National Park and are the headwater tributary of the Missouri 

River. It is here that its true character is revealed and its reputation as a world-renowned 

Blue Ribbon/Class 1 trout fishery harboring some of the largest rainbows and trophy browns. 

To the river’s east, the Madison Range with its magnificent 10,000-foot peaks comprises the 

Lee Metcalf Wilderness; to the west are the vast timbered slopes of the Gravelly Range. 

The Madison Valley is a major migration corridor for big game and a host of migratory birds 

and is part of the Greater Yellowstone Ecosystem which resource managers consider one of 

the most intact ecologically functioning landscapes with abundant populations of elk, 

antelope and deer. A significant elk herd (~ 2,000 animals) traverses the valley seasonally, 

wintering at the adjoining MFWP, Wall Creek Wildlife Management Area. The valley 

provides core secure habitat for connectivity and dispersal, as wide-ranging grizzlies, 

wolverine and wolves expand their range outward from Greater Yellowstone.

The property adjoins BLM lands managed within the Madison River Special Recreation 

Management Area, as well as MFWP, State Trust Lands, and private lands under 

conservation easements, linking hundreds of thousands of protected acres. The property 

includes aquatic features such as 350 acres of wetlands, numerous ponds, and two miles of 

the Madison River. The river and ponds on the project provide foraging, nesting, and 

migration habitat for a variety of resident and migratory birds. Trumpeter Swans have been 

breeding on these ponds. Protecting the area from future development will aid in preserving 

this condition, maintaining critical wildlife connectivity and transitional habitat while 

increasing resiliency to the effects of climate change. Addition of the project lands will also 

greatly enhance access to the river expanding public recreational opportunities.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $2,500.
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 57

2013 

Actual

2014 

Enacted

2015 President's Budget

Fixed Cost 

Changes Transfers Program Changes

Requested 

Amount

Change 

from 

2014

Inholding, 

Emergency, & 

Hardship

$000 1,420 1,616 +0 +0 +0 1,616 +0

FTE 0 0 +0 0 0 +0

Justification of 2015 Program Changes

The 2015 budget request for the Inholding, Emergency and Hardship program is $1,616,000. 

Program Overview

The Inholding, Emergency and Hardship program allows the BLM to promote conservation of 

natural landscapes and resources by consolidating privately owned land with publicly owned 

land when properties become available on short notice and would not remain available unless 

immediate action is taken. The availability of funds for Inholding, Emergency, and Hardship 

purchases permits timely actions to alleviate hardships and prevent adverse land use that may 

conflict with management objectives for adjacent public lands. The BLM’s parcels targeted for 

purchase with these funds, although typically small and generally inexpensive, conserve and 

protect cultural and historic resources, permit retention of increasingly limited open spaces, 

preserve wildlife habitat and wilderness, enhance public recreation opportunities, and are 

strongly supported for Federal acquisition by local communities.

2015 Program Performance

In 2015, 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 & Hardship
2015 Budget Justifications Bureau of Land Management

Page VIII - 58 Chapter VIII – Land Acquisition

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Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 59

Activity: Land Acquisition

Subactivity: Acquisition Management

2013 

Actual

2014 

Enacted

2015 President's Budget

Fixed Cost 

Changes Transfers Program Changes

Requested 

Amount

Change 

from 2014

Acquisition 

Management

$000 1,778 1,898 +6 +0 +0 1,904 +6

FTE 8 11 +0 0 11 +0

Justification of 2015 Program Changes

The 2015 budget request for the Acquisition Management program is $1,904,000 and 11 FTE, a 

change of +$6,000 from 2014 enacted. 

Program Overview

The Acquisition Management program completes the administrative tasks necessary for the 

Land Acquisition program to acquire land funded through the Land and Water Conservation 

Fund. Acquisition Management program funds are used for title research, appraisal, appraisal 

review, project planning, boundary surveys, relocation, taxes, escrow, closing, coordination with 

BLM multi-resource programs, and coordination with local governments and private parties.

The BLM closely monitors funds spent for processing costs associated with the purchase of 

land and interests in land. Processing costs typically range between $50,000 and $100,000 per 

project, depending on the complexity of title searches and appraisals, boundary surveys, the 

number of parcels contained in each purchase, costs associated with the purchase of 

conservation easements, and other factors. Close communication with field offices and close 

monitoring of funds spent, allows the BLM to allocate the appropriate amount of funding to each 

office.

The Acquisition Management program receives assistance from dozens of third-party partners 

such as the Audubon Society, the Conservation Fund, the Nature Conservancy, and the Trust 

for Public Land and the Wilderness Land Trust. These partners continually assist local 

communities and the BLM in supporting the acquisition and management of specific properties 

for cultural, recreational and wildlife values and to preserve open space. While the majority of 

these partners support acquisition of lands through grassroots political advocacy and long-term 

conservation management, some regional and national partners directly assist the BLM by 

becoming transactionally involved in the purchase of fee and conservation easement property 

interests. Approximately 80 percent of BLM purchase transactions are completed with the 

assistance of these third-party conservation partners. This assistance is a major cost savings 

for the BLM.

2015 Program Performance

In 2015, the BLM will complete the administrative tasks necessary to acquire fee or easement 

interests in lands designated for purchase under the Land Acquisition program.
2015 Budget Justifications Bureau of Land Management

Page VIII - 60 Chapter VIII – Land Acquisition

Budget Schedules – Current Law

Account Symbol and Title

14X5033

Land Acquisition

Line 2013 

Act

2014 

CY

2015 

BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land acquisition 0001 16 16 16

 Acquisition management 0002 2 2 2

Total new obligations 0900 18 18 18

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 16 16 17

 Unobligated balance transfer to other accts [14-1125] 1010 -3 0 0

 Unobligated balance (total) 1050 13 16 17

 Budget authority:

 Appropriations, discretionary:

 Appropriation (special or trust fund) 1101 22 19 25

 Appropriations permanently reduced 1130 -1 0 0

 Appropriation, discretionary (total) 1160 21 19 25

 Discretionary, Appropriations Committee

 Appropriation [Protected Conserving New Lands-LWCF] 1160-40 22 19 25

 Baseline Civilian Pay 1160-50 1 1

 Baseline Non-Pay 1160-50 18 18

 Appropriation [Text] 1160-40 -1 0 0

 Baseline Non-Pay 1160-50 0 0

Total budgetary resources available 1930 34 35 42

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 16 17 24

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 3 1 3

 Obligations incurred, unexpired accounts 3010 18 18 18

 Outlays (gross) 3020 -20 -16 -16

 Unpaid obligations, end of year 3050 1 3 5

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 3 1 3

 Obligated balance, end of year 3200 1 3 5

Budget authority and outlays, net:
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 61

Budget Schedules – Current Law

Account Symbol and Title

14X5033

Land Acquisition

Line 2013 

Act

2014 

CY

2015 

BY

 Discretionary:

 Budget authority, gross 4000 21 19 25

 Outlays, gross:

 Outlays from new discretionary authority 4010 11 5 6

 Outlays from discretionary balances 4011 9 11 10

 Outlays, gross (total) 4020 20 16 16

 Budget authority, net (discretionary) 4070 21 19 25

 Outlays, net (discretionary) 4080 20 16 16

Budget authority, net (total) 4180 21 19 25

Outlays, net (total) 4190 20 16 16

 Physical assets:

 Major equipment:

 Purchases and sales of land and structures for Federal 

use:

 Direct Federal programs:

 Budget Authority 1340-01 21 19 25

 Outlays 1340-02 20 16 16

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 1 1 1

 Other services from non-Federal sources 25.2 1 0 0

 Land and structures 32.0 16 17 17

 Total new obligations 99.9 18 18 18

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 8 11 11

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-5033] 1000 25,000
2015 Budget Justifications Bureau of Land Management

Page VIII - 62 Chapter VIII – Land Acquisition

Budget Schedules - Proposal

Account Symbol and Title

14X5033

Land Acquisition

Line 2013 

Act

2014 

CY

2015 

BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land acquisition 0001 0 0 30

 Acquisition management 0002 0 0 4

Total new obligations 0900 0 0 34

Budgetary Resources:

 Budget authority:

 Appropriations, mandatory:

 Appropriations transferred from other accts [14-5005] 1221 0 0 64

 Appropriations, mandatory (total) 1260 0 0 64

 Appropriations, mandatory - Computed Totals 1260-20 0 0 64

 Mandatory, Authorizing Committee

 Appropriation [LWCF] 1260-40 0 0 64

Total budgetary resources available 1930 0 0 64

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 0 0 30

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 0

 Obligations incurred, unexpired accounts 3010 0 0 34

 Outlays (gross) 3020 0 0 -6

 Unpaid obligations, end of year 3050 0 0 28

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 0

 Obligated balance, end of year 3200 0 0 28

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 64

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 6

 Budget authority, net (mandatory) 4160 0 0 64

 Outlays, net (mandatory) 4170 0 0 6

Budget authority, net (total) 4180 0 0 64

Outlays, net (total) 4190 0 0 6
Bureau of Land Management 2015 Budget Justifications

Chapter VIII – Land Acquisition Page VIII - 63

Budget Schedules - Proposal

Account Symbol and Title

14X5033

Land Acquisition

Line 2013 

Act

2014 

CY

2015 

BY

 Physical assets:

 Major equipment:

 Purchases and sales of land and structures for Federal 

use:

 Direct Federal programs:

 Budget Authority 1340-01 0 0 64

 Outlays 1340-02 0 0 6

Object Classification (O) ($ in Millions)

Direct obligations:

 Other services from non-Federal sources 25.2 0 0 10

 Land and structures 32.0 0 0 24

 Total new obligations 99.9 0 0 34

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 0 0 0
2015 Budget Justifications Bureau of Land Management

Page VIII - 64 Chapter VIII – Land Acquisition

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Oregon and California 

Grant Lands 

 

Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX - 1

Oregon and California Grant Lands

Appropriations Language

For expenses necessary for management, protection, and development of resources and for 

construction, operation, and maintenance of access roads, reforestation, and other 

improvements on the revested Oregon and California Railroad grant lands, on other Federal 

lands in the Oregon and California land-grant counties of Oregon, and on adjacent rights-ofway; and acquisition of lands or interests therein, including existing connecting roads on or 

adjacent to such grant lands; [$114,467,000] $103,957,000, to remain available until expended:

Provided, That 25 percent of the aggregate of all receipts during the current fiscal year from the 

revested Oregon and California Railroad grant lands is hereby made a charge against the 

Oregon and California land-grant fund and shall be transferred to the General Fund in the 

Treasury in accordance with the second paragraph of subsection (b) of title II of the Act of 

August 28, 1937 (43 U.S.C. 1181(f)). (Department of the Interior, Environment, and Related 

Agencies Appropriation Act, 2014.)

Appropriations Language Citations

The Oregon and California Grant Lands Act of 1937 (43 U.S.C. 1181) provides for 

conservation, management, permanent forest production, and sale of timber from revested 

Oregon and California (O&C) grant lands and reconveyed Coos Bay Wagon Road (CBWR) 

grant lands located in western Oregon.

Authorizations

The Federal Land Policy and Management Act of 1976 (43 U.S.C. 1701 et seq) as 

amended, provides for the public lands to be generally retained in Federal ownership; for 

periodic and systematic inventory of the public lands and their resources; for a review of existing 

withdrawals and classifications; for establishing comprehensive rules and regulations for 

administering public land statutes; for multiple use management on a sustained yield basis; for 

protection of scientific, scenic, historical, ecological, environmental, air and atmospheric, water 

resource, and archaeological values; for receiving fair market value for the use of the public 

lands and their resources; for establishing uniform procedures for any disposal, acquisition, or 

exchange; for protecting areas of critical environmental concern; and for recognizing the 

Nation's need for domestic sources of minerals, food, timber, and fiber from the public lands, 

including implementation of the Mining and Minerals Policy Act of 1970.

The Federal Land Policy and Management Act applies to all public lands that include the 

O&C grant lands by definition (Sec. 103(e)). However, Sec. 701(b) of FLPMA (43 U.S.C. 1701

note) provides that if any provision of FLPMA is in conflict with or inconsistent with the O&C Act

and Coos Bay Wagon Road Act, insofar as they relate to management of timber resources and 

disposition of revenue from lands and resources, the latter Acts will prevail. In addition, many 

other Federal statutes regarding natural resource management and protection apply to the 

management of the O&C and CBWR grant lands in western Oregon.

The Act of May 24, 1939 (53 Stat. 753) relates to the disposition of funds from the CBWR grant 

lands located in western Oregon. 
2015 Budget Justifications Bureau of Land Management

Page IX - 2 Chapter IX – Oregon & California Grant Lands

The Timber Protection Act of 1922 (16 U.S.C. 594) provides for the protection of timber from 

fire, insects, and disease.

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393)

authorizes stabilized payments to O&C and CBWR Counties for 2001 through 2006. Each 

county that received at least one payment during the eligibility period (1986-1999) received an 

amount equal to the average of the three highest 50-percent payments and safety net payments 

made for the years of the eligibility period. The payments were adjusted to reflect changes in the 

Consumer Price Index. The Act expired in 2006. The final payments for 2006 were made in 

2007, consistent with the Act.

P.L. 110-28 provided one additional year of payments to O&C grant lands and Coos Bay 

Wagon Road counties.

Sec. 601. of P.L. 110-343 Secure Rural Schools and Community Self-Determination 

Program provided an extension and ramping down of payments to the O&C grant lands and the

Coos Bay Wagon Road counties through fiscal year 2011.

P.L. 112-141 – Moving Ahead for Progress in the 21st Century Act (MAP-21) provided an 

extension of one year of Secure Rural School payments to O&C grant lands and Coos Bay 

Wagon Road counties.

P.L. 113-40 – Helium Stewardship Act of 2013 provided an extension of one year of Secure 

Rural School payments to O&C grant lands and Coos Bay Wagon Road counties. 

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 2015 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX - 3

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Western Oregon Resources Management

Forest Management 264 30,383 266 33,447 +160 - +0 + 0 -1,626 266 31,981 - -1,466 

Reforestation & Forest Development 138 22,387 150 23,851 +91 - +0 - +0 150 23,942 - +91 

Other Forest Resource Mgmt 255 34,672 255 36,985 +140 - +0 -24 -4,410 231 32,715 -24 -4,270 

Resource Mgmt Planning 39 5,338 24 7,140 +8 - +0 -10 -4,183 14 2,965 -10 -4,175 

Total, Western Oregon Resource Management 696 92,780 695 101,423 +399 - +0 -34 -10,219 661 91,603 -34 -9,820 

Info. & Resource Data Systems 17 1,822 11 1,923 +5 - +0 -2 -156 9 1,772 -2 -151 

Transportation & Facilities Maintenance

Deferred Maintenance 3 838 - - +0 - +0 - +0 - - - +0 

Annual Maintenance & Operations 71 9,571 76 10,063 +44 - +0 -4 -590 72 9,517 -4 -546 

Subtotal, Western Oregon Trans & Facilities Maint 74 10,409 76 10,063 +44 - +0 -4 -590 72 9,517 -4 -546 

Construction & Acquisition 3 293 3 310 +2 - +0 - +0 3 312 - +2 

NMs & NCAs 5 709 9 748 +5 - +0 - +0 9 753 - +5 

Total, Oregon & California Grant Lands 795 106,013 794 114,467 +455 - +0 -40 -10,965 754 103,957 -40 -10,510 

 Change from 

2013 Actual 2014 Enacted 2014 Enacted Fixed 

Cost

 Transfers Program 

Changes 

 Requested 

Amount 

2015 President's Budget

Summary of Requirements

(dollars in thousands)
2015 Budget Justifications Bureau of Land Management

Page IX - 4 Chapter IX – Oregon & California Grant Lands

Other Fixed Cost Changes and Projections 2014 Total 

or Change

2014 to 2015 

Change

Change in Number of Paid Days - +0

Pay Raise +298 +403

Employer Share of Federal Health Benefit Plans +39 +52

The change reflects the salary impact of a programmed one percent pay raise increase as proposed in 

the Circular A-11.

The change reflects expected increases in employer's share of Federal Health Benefit Plans.

Justification of Fixed Costs and Internal Realignments

Oregon and California Grant Lands

(Dollars In Thousands)

The number of paid days do not change between FY2014 and FY2015.
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 5

The Oregon and California (O&C) grant lands appropriation provides for management of the 

revested O&C Railroad grant lands and the reconveyed Coos Bay Wagon Road (CBWR) grant 

lands. The BLM manages these lands for forest diversity and sustainability while providing an 

array of multiple-use benefits and services to local communities and the public (see discussion 

under each activity and subactivity). As mandated by the O&C Act of 1937 (43 U.S.C. 1181), 

these lands are managed for timber production under the principle of sustained yield. Activities 

focus on forest management including commodity production; watershed health and productivity 

including soil and water restoration projects; wildlife and fisheries habitat improvement; 

recreation opportunities; cultural resources protection; and infrastructure maintenance.

The BLM manages 2.4 million acres of O&C grant lands, CBWR lands, and intermingled public 

domain lands with this appropriation. The BLM manages resources on public domain land (10 

percent of the area) under the provisions of the Federal Land Policy and Management Act of 

1976. Programs conducted on certain O&C grant lands within National Forests are under the 

jurisdiction of the U.S. Forest Service (USFS) and managed with USFS funds (often refered to 

as Controverted O&C Lands). The USFS returns receipts generated from activities on these 

lands to the BLM for payment to counties in accordance with the Act. The five budget activities 

of the O&C appropriation are summarized below. Through these activities, the BLM implements 

resource management plans (RMPs) and supports resource activities on the O&C and CBWR 

grant lands under the BLM’s jurisdiction.

 Western Oregon Construction and Acquisition provides for the acquisition of 

easements, road-use agreements for timber site access, and the design of access roads 

for general resource management purposes. 

 Western Oregon Transportation and Facilities Maintenance provides for 

maintenance activities for the transportation system, office buildings, warehouse and 

storage structures, shops, greenhouses, and recreation sites. This program’s efforts 

maintain the transportation system necessary for effective implementation of the RMPs. 

Road maintenance activities help to reduce or eliminate negative impacts of poor road 

conditions on aquatic and fisheries resources, including Pacific salmon and other 

resident and anadromous fish populations in the Northwest. Beginning in 2014, Deferred 

Maintenance and Capital Improvement projects are no longer funded through this 

budget activity, but are now funded through the Management for Land and Resources

Deferred Maintenance and Capital Improvements budget subactivity.

 Western Oregon Resources Management provides for planning, preparing, offering, 

administering and monitoring timber sales; maintaining the sustainability of forest 

resources and timber harvest through reforestation, development, and restoration 

techniques; managing wildlife habitat; and maintaining or improving water and air quality. 

 Western Oregon Information and Resource Data Systems provide for the acquisition, 

operation, and maintenance of the automated data support systems required for the 

management of the O&C grant lands. The focus of this program is to make data 

operational for monitoring and adaptive management; and for developing and analyzing 

activity plans, such as timber sales and habitat management plans.

 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. 
2015 Budget Justifications Bureau of Land Management

Page IX - 6 Chapter IX – Oregon & California Grant Lands

O&C Lands in Western Oregon

(acres)

BLM-Managed Lands 

O&C Grant Lands 2,084,816 

CBWR Lands 74,547 

Public Domain Lands 239,500

 Total – BLM 2,398,863 

U.S. Forest Service-Managed Lands 

Controverted O&C Lands 462,678 

Special Act O&C Lands 29,721 

 Total - U.S. Forest Service 492,399 

Source: Public Land Statistics, 2012

Additional Funding Methods

In addition to the O&C Grant Lands appropriation, two Permanent Operating Fund 

Appropriations that are available for use do not require annual appropriation action. These are 

the Timber Sale Pipeline Restoration Fund and the Forest Ecosystem Health and Recovery 

Fund as outlined in the Permanent Operating Funds chapter. 

Management of Oregon and California Grant Lands

The BLM manages 2.4 million acres of O&C and Coos Bay Wagon Road lands in western 

Oregon. The BLM has practiced sustainable forest management, as outlined in the O&C Act of 

1937, which includes a provision for the western Oregon counties to receive shares of timber 

sale receipts. In the late 1970's, USFS researchers observed a rapid decline in the populations 

of the Northern Spotted Owl, a species associated with old-growth forests. In 1990, the U.S. 

Fish and Wildlife Service (FWS) listed the Northern Spotted Owl as threatened under the 

Endangered Species Act of 1973, citing loss of old-growth habitat. The BLM modified 

management of forested lands in response, reducing the annual timber sale volumes and thus 

reducing receipts to counties.

Soon after the listing of the owl, President Clinton convened a group of scientists called the 

Forest Ecosystem Management Assessment Team. Their Assessment report in 1993, led to the 

development of the Northwest Forest Plan (NWFP) in 1994; the NWFP amended BLM and 

USFS land use plans within the range of the Northern Spotted Owl. This plan set out land use 

allocations, standards and guidelines for management designed to contribute to the recovery of 

Northern Spotted Owls and marbled murrelets and to produce a predictable and sustainable 

level of timber sales. Under the NWFP, agencies are required to survey and manage for rare, 

uncommon, or little known species of plants and animals.

The BLM has managed the O&C lands under the NWFP since 1994. The change in 

management resulting from the NWFP has not been without controversy. Western Oregon 

Districts continue to receive protests, appeals, and litigation on individual timber sales as well as 

on other larger programmatic issues.

The Secure Rural Schools and Community Self-Determination Act of 2000 (and as amended) 

continues to allow counties to opt for a Federal payment rather than a portion of timber receipts. 

Despite the challenges, the BLM is committed to managing forests in the Pacific Northwest to:
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 7

 Contribute to the restoration of functional and sustainable ecological conditions in 

Federal forests including the conservation of old-growth forests and trees; 

 Assist in the recovery of threatened species; 

 Provide economic opportunities to help sustain local communities; and 

 Maintain a highly skilled workforce and milling infrastructure. 

In 2009, the Western Oregon Plan Revisions (2008 Records of Decision/RMPs), finalized in

December 2008, were withdrawn by the Secretary. He determined the process was legally 

flawed, having failed to complete consultation under the Endangered Species Act. The decision 

to withdraw the 2008 RODs/RMPs was accompanied with the direction to revert to managing 

the O&C lands under the Northwest Forest Plan (1995 RODs/RMP). Since 2009, the BLM has 

subsequently designed timber sale program of work consistent with the 1995 RODs/RMPs, 

Northwest Forest Plan, the Endangered Species Act, and other laws and regulations. Forest 

restoration is one of the goals of the forest plan, and is emphasized where appropriate in the 

context of the timber sale planning process. BLM management plans in western Oregon 

continue to be litigated from both conservation and industry groups, resulting in a complicated 

and changing legal framework under which managers must implement projects.

In October 2009, former BLM Director Abbey and the late FWS Director Sam Hamilton 

convened the interdisciplinary Western Oregon Task Force. The task force, composed of 

experts across a range of resource disciplines, from the BLM, the FWS, the National Marine 

Fisheries Service and the USFS, examined the Western Oregon Plan Revisions process and 

the long-standing challenges of managing the forests for multiple goals. The task force issued 

recommendations that the BLM and other Federal agencies have been working on in order to 

find new approaches for forest management.

In December 2010, the Secretary initiated a plan applying the principles of ecological forestry as 

suggested by Doctors Norm Johnson and Jerry Franklin, on BLM lands. This ongoing initiative 

explores ways to restore ecological processes and address economic issues on O&C lands. As 

of January 2014, the BLM has nearly completed two forestry ecological pilots and sold eight 

additional timber sales in various western Oregon Districts. The projects seek to:

 Demonstrate a landscape level approach to forest ecosystem restoration that includes 

active management;

 Restore functional and sustainable ecological conditions in Federal forests;

 Allow recovery for threatened species; and 

 Provide needed employment opportunities. 

The FWS is assisting in development and review of the ecological forestry efforts. The BLM is 

using a variety of means to inform and involve stakeholders to stimulate collaboration with 

public stakeholders.

In June 2011, the FWS issued their Revised Recovery Plan for the Northern Spotted Owl, and 

in November 2012, issued the final Critical Habitat Rule for the Northern Spotted Owl. Both the 

Recovery Plan and the final Critical Habitat Rule emphasize maintenance and enhancement of 

Northern Spotted Owl habitat and do not preclude active forest management, where 

appropriate, to increase stand resiliency, reduce hazardous fuels, and promote ecological 

diversity. The western Oregon districts are incorporating the new Critical Habitat Rule and 

Recovery Plan into their out-year timber sale planning.
2015 Budget Justifications Bureau of Land Management

Page IX - 8 Chapter IX – Oregon & California Grant Lands

In February 2012, the BLM announced new planning efforts for the six West-side Oregon 

Districts. The BLM expects to complete the plans in the summer of 2015.

Timber Harvest Targets and Volumes

The long-term annual timber target or allowable sale quantity (ASQ) from western Oregon O&C 

lands and as declared in the six Resource Management Plans (RMPs) is 203 million board feet 

(MMBF). Although volume offered from the reserve land use allocations does not count towards 

the ASQ target, it does contribute towards (1) meeting the BLM’s annual performance target, (2) 

achieving ecological objectives in reserve areas through active management, and (3) 

contributing to the needs of rural communities. The NWFP timber targets and accomplishments 

displayed in the tables below are for the BLM-managed lands in both western Oregon and 

northern California, even though timber activities in northern California are funded by other 

appropriations.

O&C Volume Offered for Sale, 2001-2013

0

50

100

150

200

250

2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013

M

M

B

F
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 9

BLM O&C WESTERN OREGON AND CALIFORNIA ALLOWABLE SALE QUANTITY –

TOTAL VOLUME OFFERED UNDER THE NWFP

BLM NWFP Area Timber Volume Targets

Year

Allowable Sale 

Quantity Target Total Volume Offered

OR CA Total OR CA Total

1995 118 15 133 127.3 22.8 150.1

1996 180 2.5 182.5 189.7 5.8 195.5

1997 211 2.5 213.5 212 10.2 222.2

1998 211 2.5 213.5 257.5 0.4 257.9

1999 203 2.5 205.5 61.7 3.1 64.8

2000 203 2.5 205.5 69.2 0.7 69.9

2001 203 1 204 56.4 0.1 56.5

2002 203 1 204 162.5 0.4 162.9

2003 203 1 204 162.7 0 162.7

2004 203 1 204 140 0.1 140.1

2005 203 1 204 198.2 7.7 205.9

2006 203 1 204 200.6 0.6 201.2

2007 203 1 204 195.6 3.2 198.8

2008 203 1 204 230.2 0.8 236.8

2009 203 1 204 202 0.8 202.8

2010 203 1 204 233 0.8 233.8

2011 203 1 204 197 1.8 198.8

2012 203 1 204 206.4 0.5 206.9

2013 203 1 204 204.9 0.0 204.9

2014 Est 203 1 204 231 1.0 232

2015 Est 203 1 204 203 1.0 204

Note: Timber volumes displayed include BLM-managed lands in California managed 

within the area of the NWFP, even though activities are funded by BLM 

appropriations other than O&C funds.

O&C Revenues and Receipts

The BLM derives timber receipts used for O&C payments from the harvest of timber on O&C 

lands managed by the BLM, and controverted O&C grant lands under the jurisdiction of the 

USFS. In addition, the BLM derives receipts from Coos Bay Wagon Road and Public Domain 

lands in western Oregon as well. 

There is a trend of increasing timber sale receipts from 2010 & 2011. The increase is reflective 

of positive market conditions in the forest products industry as it climbs out of the 2008 & 2009 

housing decline. 
2015 Budget Justifications Bureau of Land Management

Page IX - 10 Chapter IX – Oregon & California Grant Lands

Timber Receipts, Western Oregon

(Million $)

2008 2009 2010 2011 2012 2013 2014

Est

2015 

Est

O&C Grant Lands

Regular Sales 13.0 14.2 9.7 11.6 11.5 17.3 18.0 19.0

Salvage Sales 4.3 5.5 3.2 2.7 4.3 4.0 4.0 4.5.

Subtotal 17.3 19.7 12.9 14.3 15.8 21.3 22.0 23.5

CBWR Lands

Regular Sales 0.3 0.2 .8 0 1.0 2.2 1.5 1.0

Salvage Sales 0.1 0 0 0 0.2 0.2 0.2 0.2

Subtotal 0.4 0.2 0.8 0.1 1.2 2.4 1.7 1.2

Timber Sale Pipeline Restoration Fund

PD, O&C, and CBWR 9.8 4.5 4.3 3.9 3.8 2.4 2.3 2.8

Stewardship Contract Excess Proceeds

PD, O&C, and CBWR 0 0.2 0 0.1 0.3 0.05 0.0 0.0

Total Receipts 27.60 24.6 18.0 18.3 21.1 26.1 26.0 27.5

Timber Sale Pipeline Restoration Fund

The Timber Sale Pipeline Restoration Fund (the Pipeline Fund) was established under Section 

327 of the Omnibus Consolidated Rescissions and Appropriations Act of 1996. The Act 

established separate funds for the USFS and the BLM, using revenues generated by timber 

sales released under Section 2001(k) of the 1995 Supplemental Appropriations for Disaster 

Assistance and Rescissions Act, which directs that 75 percent of the Pipeline Fund be used to 

fill each agency’s timber sale “pipeline” and that 25 percent of the Pipeline Fund be used to 

address maintenance backlog for recreation projects on BLM and USFS lands after statutory 

payments are made to State and local governments and the U.S. Treasury.

At the end of 2013, the balance in BLM’s Fund was approximately $8.6 million. The BLM has 

implemented a spend-down plan to bring the Fund balance down to approximately $5.8 million 

by the end of fiscal year 2014. This carryover balance offsets irregular yearly deposits caused 

by fluctuations in timber market conditions and purchasers opting on which year to harvest their 

1-3 year timber sale contracts. A balance at the end of the year permits continued use of the 

Fund to meet the Fund’s annual objective of rebuilding the timber sale pipeline. Receipts, 

deposits and cumulative expenditures are described in the Permanent Operating Funds 

chapter. 

Payments to the O&C Counties

Timber harvest levels have dropped significantly from the historical levels of the late 1980s and 

early 1990s. The traditional payment formulas defined in Title II of the Oregon and California 

Grant Lands Act of 1937, U.S.C. 43 1181f, (50 Stat. 876, Title II) were modified to account for 

these declines and provide fiscal predictability to the O&C counties.

Receipts from public domain lands within the O&C grant lands are distributed to the State of 

Oregon (four percent), the General Fund of the U.S. Treasury (20 percent), and the 

Reclamation Fund (76 percent), except those generated through projects funded by the Forest 
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 11

Ecosystem Healthy Recovery Fund and the Pipeline Fund, which are deposited into those 

accounts.

Under the Secure Rural Schools and Community SelfDetermination Act of 2000 (P.L. 106-393), the annual 

payments to the 18 O&C counties were derived from 

any revenues, fees, penalties, or miscellaneous 

receipts (exclusive of deposits to any relevant trust 

fund, or permanent operating funds such as the 

Timber Sale Pipeline Restoration or the Forest 

Ecosystem Health and Recovery funds) received by 

the Federal government from activities by the BLM on 

O&C lands, and to the extent of any shortfall, out of 

any funds in the Treasury not otherwise appropriated. 

The Secure Rural Schools Act of 2000 provided that,

for 2001-2006, each payment to eligible counties 

would be an amount equal to the average of the three 

highest payments made during fiscal years 1986-

1999. For each payment made by the BLM under the 

law, the full payment amount would be adjusted for 

inflation. The Secure Rural Schools Act of 2000 

expired in 2006 and final payments for 2006 were 

made in 2007, consistent with the Act. Public Law 

110-28 provided payments for one additional year.

Also under the Secure Rural Schools Act of 2000, the 

BLM worked collaboratively with the five western 

Oregon Resource Advisory Committees, which 

reviewed over 1,024 restoration projects and 

recommended 591 projects for implementation worth 

approximately $42.8 million.

In October 2008, Congress enacted Section 601 of 

Public Law 110-343, which extended the Secure 

Rural Schools Act of 2000. Public Law 110-343

provided an extension of payments to the O&C grant 

lands and the Coos Bay Wagon Road counties 

through fiscal year 2011. As in the prior act, payments were to be made for the year prior. The 

payments for 2008 through 2010 are described in the law as “transition” payments, and are a 

declining percentage of the payments made in 2006; the payment in 2009 (for 2008) is 90 

percent of the amount paid in 2006, the payment in 2010 (for 2009) is 81 percent, and the 

payment in 2011 (for 2010) is 73 percent. The payments made to counties in 2012 (for 2011) 

used a formula based on several factors that include acreage of Federal land, previous 

payments, and per capita personal income. More information on these payments is contained in 

the Miscellaneous Permanent Payments chapter. 

In 2012, the Secure Rural Schools Act was reauthorized for one year under PL 112-141. These 

payments made to counties in 2013 (for 2012) again used a formula based on acreage of 

Federal land, previous payments, and per capita personal income. 

Payment to Western Oregon Counties 

(Million $)

Year O&C

Lands

CBWR

Lands

Total 

Payment

1994 $78.6 $0.6 $79.2

1995 75.8 0.6 76.4

1996 73.0 0.6 73.6

1997 70.3 0.6 70.9

1998 67.5 0.5 68.0

1999 64.7 0.5 65.2

2000 61.9 0.5 62.4

2001 0 0 0

2002 108.7 1.0 109.7

2003 109.6 1.0 110.6

2004 110.9 1.0 111.9

2005 112.3 1.0 113.3

2006 114.9 1.0 115.9

2007 116.3 1.0 117.3

2008 115.9 1.0 116.9

2009 104.5 0.9 105.4

2010 94.0 0.8 94.8

2011 84.7 0.7 85.5

2012 39.7 0.3 40.0

2013†

37.7 0.3 38.0

2014 39.3 .3 39.6

†

BLM made 94.9% of payments in FY 

2013, reserving approximately $1.96

million against sequestration 
2015 Budget Justifications Bureau of Land Management

Page IX - 12 Chapter IX – Oregon & California Grant Lands

In 2013, the Secure Rural Schools Act was reauthorized for one year under PL 113-40. These 

payments will be made to counties in 2014 (for 2013). 

The total SRS payment made in fiscal year 2013 (for 2012) was $37,992,143.19.

The 2015 Budget includes a legislative proposal to reauthorize the Secure Rural Schools Act 

with mandatory funding through the U.S. Forest Service. The proposal includes a five-year 

reauthorization, starting with the payments for fiscal year 2014 (which would be made in 2015). 

This SRS proposal revises the allocation split between the three portions of the program from 

the current authority emphasizing enhancement of forest ecosystems, restoration and 

improvement of land health and water quality and the increase of economic activity. For more 

information on this proposal, see the U.S. Forest Service 2015 Budget Justification.
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 13

Activity: Western Oregon Acquisition 

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Construction & 

Acquisition

$000 293 310 +2 +0 +0 312 +2

FTE 3 3 +0 +0 3 +0

Justification of 2015 Program Change

The 2015 Budget Request for the Western Oregon Acquisition Program is $312,000 and 3 FTE. 

Activity Description

The Western Oregon Acquisition Program acquires and protects access to public lands in 

western Oregon, providing access to BLM timber sales and other activities associated with 

managing Oregon and California (O&C) lands. The BLM estimates that nearly 5,000 separate 

tracts of O&C lands require some form of access for proper management. The BLM obtains 

access by purchase of perpetual easements, acquisition, or condemnation. Acquisition funding 

is also used to acquire lands or interests in lands needed for infrastructure development 

including recreation sites, administrative sites, and transportation facilities.

The BLM has long-standing (dating back as far as the 1950’s-1960’s) reciprocal right-of-way 

agreements with surrounding and adjacent private landowners allowing reciprocal use of each 

owner’s roads. Access to western Oregon O&C lands is dependent upon the continual upkeep 

of these long-standing reciprocal rights-of-way agreements. As adjacent private lands change 

ownership, existing agreements need to be continuously negotiated and updated. The BLM

prioritizes reciprocal right-of-way agreements based upon both private requests and the land 

management needs. Generally, right-of-way agreements necessary to meet timber 

management performance measures for the BLM and adjacent private harvesting plans receive 

the highest priority, while access to recreational and key administrative facilities also receive 

high priority.

Other Funding Sources

Timber haul roads, or “fee roads” negotiated under reciprocal right-of-way agreements are often 

maintained using road maintenance fees collected from such roads.

2015 Program Performance

In 2015, the Western Oregon Acquisition Program will:

 Complete up to 20 new reciprocal right-of-way agreements, amendments, or 

assignments.

 Continue uploading historic 1950s reciprocal O&C ROW agreement data into a

database that facilitate analysis for 14,000 miles of roads, expedites analysis of third 

party ROW agreements, and depicts public access via GIS.
2015 Budget Justifications Bureau of Land Management

Page IX - 14 Chapter IX – Oregon & California Grant Lands

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Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 15

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Annual Maintenance & 

Operations

$000 9,571 10,063 +44 +0 -590 9,517 -546

FTE 71 76 +0 -4 72 -4

Deferred Maintenance $000 838 0 +0 +0 +0 0 +0

FTE 3 0 +0 +0 0 +0

Transportation & 

Facilities Maintenance

$000 10,409 10,063 +44 +0 -590 9,517 -546

FTE 74 76 +0 -4 72 -4

Justification of 2015 Program Change

The 2015 Budget Request for the Western Oregon Acquisition Program is $9,517,000 and 72

FTE, a a program change of -$590,000 and -4 FTE from the 2014 enacted level. 

Activity Description

In 2014, under the Interior, Environment, and Related Appropriations (P.L. 113-76), the 

O&C Deferred Maintenance function was transferred to the Management of Lands and 

Resources, Deferred Maintenance and Capital Improvements Subactivity.

Activity: Western Oregon Transportation &

Facilities Maintenance
2015 Budget Justifications Bureau of Land Management

Page IX - 16 Chapter IX – Oregon & California Grant Lands

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Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 17

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Annual Maintenance & 

Operations

$000 9,571 10,063 +44 +0 -590 9,517 -546

FTE 71 76 +0 -4 72 -4

Summary of 2015 Program Changes for Annual Maintenance & Operations: ($000) FTE

General Program Decrease -590 -4 

Total -590 -4 

Other Resources Supporting O&C Annual Maintenance & Operations:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Road Maintenance $000 2,745 1,856 2,000 +144

FTE 6 6 6 +0

Notes:

- Road Maintenance amounts are shown as new budget authority derived from provisions for amortization of 

road costs in contracts and by cooperative financing with other public agencies and with private agencies or 

persons, or by a combination of these methods; 43 USC 1762(c), which provides the authority to acquire, 

construct, and maintain roads within and near the public lands to permit maximum economy in harvesting 

timber from such lands tributary to such roads and at the same time meet the requirements for protection, 

development, and management of such lands for utilization of the other resources thereof. appropriates 

these funds on a permanent basis

- Amount in 2013 and 2014 for Road Maintenance shown net of sequestration

- More information on Road Maintenance is found in the Permanent Operating Funds chapter

- Road Maintenance is used on both Oregon and California Grant Lands and Public Domain Forestry Lands

- Actual and estimated obligations, by year for Road Maintenance are found in President's Budget Appendix 

under the BLM section for Permanent Operating Funds account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

Justification of 2015 Program Changes

The 2015 budget request for Western Oregon Operations and Annual Maintenance Program is 

$9,517,000 and 72 FTE, a program change of -$590,000 and -4 FTE from the 2014 enacted 

level.

General Program Decrease (-$590,000/-4 FTE) - In 2015, the Western Oregon Operations and 

Annual Maintenance Program will slightly reduce program capacity and outputs. The BLM will 

continue to emphasize maintenance on high-priority facilities, particularly those that have the 

greatest public exposure and use.

Program Overview

Activity: Western Oregon Transportation &

Facilities Maintenance 

Subactivity: Operations & Annual Maintenance
2015 Budget Justifications Bureau of Land Management

Page IX - 18 Chapter IX – Oregon & California Grant Lands

The Operations and Annual Maintenance Program maintains the BLM’s investment in the 

transportation network, preserves public safety, and minimizes environmental impacts,

especially related to water quality and soil erosion, and provides for functional utilities and other 

services at visitor and administrative sites 

supporting the O&C grant land functions. BLMmanaged roads serve commercial, administrative, 

and local government functions, as well as 

individual land users, including providing for timber 

haul, school bus and emergency routes, and 

access to private, local, State, and Federal lands.

The facilities maintained by the BLM include:

 Sixty-five administrative sites with 162 

buildings;

 One hundred and seventy recreation sites 

with 350 buildings, served by trash 

collection, sanitation facilities, and drinking 

water;

 Three dams; and

 A system of 14,200 miles of roads, including 131 miles designated as Back Country 

Byways, 324 miles of trails, along with related structures including 410 bridges, 586 

major culverts, and multiple retaining walls and subsurface drainage systems. 

Critical Factors – The following factors affect program performance:

 Heavy winter rains alter maintenance priorities, requiring changes to planned work; 

 Road closures due to wildland fire redirect road maintenance to coastal locations;

 Public use of BLM’s recreational facilities and roads accessing them is increasing. 

Maintenance priorities are established at the district and field office level annually using a 

Maintenance Operation Plan (MOP). This prioritization is based on roads and facilities that are 

essential to the districts and have the highest impact on health and safety. Emergency repair 

work that is identified as high priority is completed as soon as funding is available.

Other Funding Sources

Most O&C roads and trails used by the public are maintained using appropriated funds. Timber 

haul roads, or “fee roads,” are maintained using both appropriated funds and road maintenance 

fees collected from commercial users.

Recreation facility maintenance activities are partially funded by the O&C Recreation 

Management Program within the Western Oregon Other Forest Resources Management 

Subactivity, use fees, and the National Landscape Conservation System program. Eighteen of 

170 O&C recreation sites participate in the Recreation Site Fee program.

2015 Program Performance

In 2015, the Western Oregon Operations and Annual Maintenance Program proposes to 

complete routine annual maintenance at 275 recreation sites, 88 bridges, 175 BLM 

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 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 19

administrative buildings, and 45 BLM non-building sites. In addition, over 14,000 miles of roads 

will be assessed to prioritize where 2,000 miles of annual road maintenance will occur in 2015. 

Annual routine maintenance will also include upkeep of wells, sanitation facilities, and trails to 

reduce public health and safety risks and provide positive recreational experiences.
2015 Budget Justifications Bureau of Land Management

Page IX - 20 Chapter IX – Oregon & California Grant Lands

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Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 21

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Forest Management $000 30,383 33,447 +160 +0 -1,626 31,981 -1,466

FTE 264 266 +0 +0 266 +0

Reforestation & Forest 

Development

$000 22,387 23,851 +91 +0 +0 23,942 +91

FTE 138 150 +0 +0 150 +0

Other Forest Resource 

Mgmt

$000 34,672 36,985 +140 +0 -4,410 32,715 -4,270

FTE 255 255 +0 -24 231 -24

Resource Mgmt Planning $000 5,338 7,140 +8 +0 -4,183 2,965 -4,175

FTE 39 24 +0 -10 14 -10

Total, Western Oregon 

Resource Management

$000 92,780 101,423 +399 +0 -10,219 91,603 -9,820

FTE 696 695 +0 -34 661 -34

Other Resources Supporting Western Oregon Resources Management:

2013 

Actual

2014 

Estimate

2015 

Estimate

Change 

from 

2014

Forest Ecosystem Health and 

Recovery Fund

$000 6,104 5,522 5,610 +88

FTE 58 58 58 +0

USFS Forest Pest Control $000 475 310 400 +90

FTE 2 2 2 +0

Timber Sale Pipeline Restoration $000 2,889 2,209 2,298 +89

FTE 17 17 17 +0

Notes:

- Forest Ecosystem Health and Recovery Fund amounts are shown as new budget authority derived from the federal share 

of receipts from all BLM timber salvage sales, and from BLM forest health restoration treatments funded by this account; 43 

USC 1736a appropriates these funds on a permanent basis

- Amount in 2013 and 2014 for Forest Ecosystem Health and Recovery Fund shown net of sequestration

- More information on Forest Ecosystem Health and Recovery Fund is found in the Permanent Operating Funds chapter

- Forest Ecosystem Health and Recovery Fund is used on both Oregon and California Grant Lands and Public Domain 

Forestry Lands

- Actual and estimated obligations, by year for Forest Ecosystem Health and Recovery Fund are found in President's 

Budget Appendix under the BLM section for Permanent Operating Funds account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

- USFS Forest Pest Control amounts are shown as estimated transfers

- More information on USFS Forest Pest Control is found in the U.S. Forest Service Budget Justifications

- USFS Forest Pest Control is used on both and Public Domain Forestry Lands

- Timber Sale Pipeline Restoration amounts are shown as new budget authority derived from revenues generated by timber 

sales released under Section 2001(k) of the 1995 Supplemental Appropriations for Disaster Assistance and Rescissions 

Act, which directs that 75 percent of the fund be used to fill the BLM's timber sale pipeline and that 25 percent of the fund be 

used to address the maintenance backlog for recreation projects on BLM land; Section 327 of the Omnibus Consolidated 

Appropriations Act of 1996 (Public Law 104-134) appropriates these funds on a permanent basis

- Amount in 2013 and 2014 for Timber Sale Pipeline Restoration shown net of sequestration

- More information on Timber Sale Pipeline Restoration is found in the Permanent Operating Funds chapter

- Timber Sale Pipeline Restoration is used on lands in Oregon that are managed under the Northwest Forest Plan

- Actual and estimated obligations, by year for Timber Sale Pipeline Restoration are found in President's Budget Appendix 

under the BLM section for Permanent Operating Funds account at: 

http://www.whitehouse.gov/sites/default/files/omb/budget/fy2015/assets/int.pdf

The Interior, Environment, and Related Agencies Appropriation Act of 1996 (Public Law 104-134), Section 327, states that 

the Secretary of the Interior shall establish a Timber Sales Pipeline Restoration Fund, of which 75 percent shall be available 

for preparation of timber sales and 25 percent shall be available to expend on the backlog of recreation projects on lands 

administered by the Bureau of Land Management, without fiscal year limitation or further appropriation

Activity: Western Oregon Resources 

Management
2015 Budget Justifications Bureau of Land Management

Page IX - 22 Chapter IX – Oregon & California Grant Lands

The 2015 budget request for the Western Oregon Resources Management activity is 

$91,603,000 and 661 FTE, a program change of -$10,219,000 and -34 FTE from the 2014 

enacted level. 

Activity Description

The Western Oregon Resources Management activity provides for the management of 2.4 

million acres of Oregon and California (O&C) and Coos Bay Wagon Road grant lands, and 

intermingled Public Domain lands. This program’s objectives are to:

 Restore and maintain the ecological health of forested watersheds; 

 Provide well-distributed blocks of late-successional and old-growth forest habitat to 

benefit threatened, endangered and other sensitive species;

 Provide recreational opportunities to a growing number of users; and 

 Provide a sustainable supply of timber and other forest products.

The BLM’s active forest management approach develops landscape level solutions to resource 

management, maintaining and restoring forest landscapes and terrestrial and aquatic habitat for 

resiliency to disturbance factors such as wildfire, insects and climate change. The BLM works 

closely with Federal, State, local, and tribal partners, as well as public stakeholders and 

individuals during the planning and implementation of this active management approach to 

address timber production, fuels reduction, species habitat considerations and restoration 

opportunities.
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 23

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Forest Management $000 30,383 33,447 +160 +0 -1,626 31,981 -1,466

FTE 264 266 +0 +0 266 +0

Summary of 2015 Program Changes for Forest Mgmt: ($000) FTE

General Program Decrease -1,626 +0 

Total -1,626 +0 

Justification of 2015 Program Changes

The 2015 budget request for the Western Oregon Forest Management Program is $31,981,000 

and 266 FTE, a program change of -$1,626,000 and 0 FTE from the 2014 enacted level. 

General Program Decrease (-$1,626,000/0 FTE) – A decrease in Western Oregon Forest 

Management assumes funding from two mandatory appropriations supporting timber 

and forest health. Total funding from all three funding sources will ensure timber sales 

are sustained at a level comparable with 2012 and 2013 levels. In 2014, the BLM 

expects increased salvage timber sales resulting from 2013 southern Oregon fires that 

will temporarily increase the volume offered in that year by 20-25 million board feet. 

Program Overview

The Western Oregon Forest Management Program includes costs associated with 

management, maintenance and enhancement of forests on the public lands, including the O&C 

Grant lands, the Coos Bay Wagon Road lands, and Public Domain land within western Oregon, 

except for activities directly related to reforestation and forest development. 

Critical Factors – Compliance with the six 1995 western Oregon Resource Management Plans, 

the 1995 Northwest Forest Plan (NWFP), the 2011 Northern Spotted Owl Recovery Plan, the 

2012 Northern Spotted Owl Critical Habitat Plan, and the latest Survey and Manage guidance 

remain critical factors to the success of the program. The BLM continues to work with 

governmental and other stakeholders, including interagency coordination, in project level 

National Environmental Policy Act (NEPA) development and consultation to support efforts to 

meet performance targets for timber offered. Additionally, the BLM is engaged in the resolution 

of pending protests, appeals and litigation of timber sale contracts that permits the actual 

harvesting of timber. Within existing regulations, BLM is looking for efficiencies in streamlining 

the administrative review process with the strategy and objective of resolving project level 

issues early in the planning process.

Activity: Western Oregon Resources 

Management

Subactivity: Forest Management
2015 Budget Justifications Bureau of Land Management

Page IX - 24 Chapter IX – Oregon & California Grant Lands

Means and Strategies – Within the framework of the Endangered Species Act, the Clean 

Water Act, the O&C Act, and the NWFP, the program provides a sustainable source of timber, 

protects watersheds, and contributes to conservation, restoration, species recovery, and 

economic stability. The BLM develops forest management projects using landscape and

watershed approaches to determine the suite of treatment activities. Work continues in 

coordination with the U.S. Fish and Wildlife Service (FWS) to implement active forest 

management prescriptions and continue the implementation and monitoring of ecological

forestry timber sales, incorporating lessons learned from the pilot projects initiated by the 

Secretary in December 2010 to apply the principles of ecological forestry on O&C lands. The 

components of the program include:

 Forest landscape planning and project level NEPA development;

 Forest inventory and monitoring;

 Trespass prevention and investigation;

 Maintenance of existing right-of-way agreements;

 Maintenance and restoration of late-successional and old-growth forest structure;

 Sales of timber and other forest and vegetative products; and

 Maintenance and development of the national Forest Resource Information System 

(FRIS) databases to assure data integrity including the interfacing of the Timber Sale 

Information System and Collection and Billing System.

The Forest Management Program cooperates with the USFS in the Integrated Vegetation 

Management Group to support projects that overlap Forest Service and BLM lands.

Other Funding Sources

In addition to the O&C Grant Lands appropriation, two Permanent Operating Funds are 

available for use on O&C lands. These are the Timber Sale Pipeline Restoration Fund and the 

Forest Ecosystem Health and Recovery Fund as outlined in Permanent Operating Funds.

2015 Program Performance

In 2015, the O&C Forest Management Program proposes to:

 Offer 203 million board feet (MMBF) of timber for sale;

 Inventory and Monitor 9,000 acres of forest and woodland vegetation;

 Offer 7,000 tons of biomass through firewood permits and stewardship contracts through 

a combination of the Forest Management Program and Forest Development Program; 

and

 Harvest 180-190 MMBF180 MMBF of volume from 10,000+ acres under contract from 

the current and previous year’s operational timber sales (normal 3-year contracts).
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 25

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Reforestation & Forest 

Development

$000 22,387 23,851 +91 +0 +0 23,942 +91

FTE 138 150 +0 +0 150 +0

Justification of 2015 Program Changes

The 2015 budget request for the Western Oregon Reforestation and Forest Development 

Program is $23,942,000 and 150 FTE. 

Program Overview

The Reforestation & Forest Development Program includes costs associated with reforestation,

intermediate stand management and forest health treatments in young growth forest stands on 

the Public Lands in western Oregon. This program sustains forest restoration through active 

management to achieve healthy and productive watersheds. 

The focus areas for the Western Oregon Reforestation and Forest Development Program 

include:

 Forest regeneration and restoration activities of commercial and non-commercial forest 

lands that establish young stands and restore habitat in riparian and other reserve areas;

 Intermediate stand management activities in young growth forests that promote forest 

growth, health, value enhancement, fuel hazard reduction and structure development to 

provide for future timber harvest, biomass utilization, habitat requirements, and fire 

recovery;

 Treatments to control the spread of forest pathogens and destructive insects;

 Forest monitoring and adaptive management assessments that inform active forest 

management to achieve stand objectives and provide for the sustainable harvest of 

timber;

 Non-native and noxious weed management;

 Forest inventory, data acquisition, and consolidation of data storage and retrieval 

capabilities to facilitate coordination with other programs; and

 Cooperative research on developing technologies and management activities with other 

Federal and State resource management agencies and universities.

Critical Factors – The Reforestation and Forest Development Program is implementing the 

Cooperative Landscape Conservation Adaptation Initiative through climate change management 

planning and carbon sequestration. The BLM participates with the Task Force on Adapting 

Forests to Climate Change, a cooperative project that addresses how forest managers will 

modify seed zones in response to future climate conditions.

Activity: Western Oregon Resources 

Management

Subactivity: Reforestation and Forest Development
2015 Budget Justifications Bureau of Land Management

Page IX - 26 Chapter IX – Oregon & California Grant Lands

The BLM continually assures that landscape-level planning and project-level NEPA compliance 

work is integrated into and analyzes the full suite of reforestation and forest development 

treatments and restoration needs in the analysis areas. As part of the overall process, the BLM 

works with external and internal stakeholders to ensure that program goals are achieved.

Means and Strategies – The BLM uses the following strategies in western Oregon 

reforestation and forest development:

 Employing emerging technologies such as Light and Detection and Ranging (LiDAR) to 

provide better, more cost-effective information for decision-makers;

 Supporting the Secretarial forestry ecological pilot projects by developing site-specific 

prescriptions, modeling, and monitoring;

 Supporting the Cooperative Landscape Conservation strategy through work with the 

USFS to study the potential for assisted migration of Douglas-fir in response to future 

climate conditions;

 Balancing workforce and operational capacity to prepare and administer service 

contracts, stewardship contracts, and agreements to reforest and implement high-priority 

forest development treatments;

 Implementing intermediate stand management activities using a variety of authorities 

including stewardship contracts, service contracts, and timber sale contracts to offer 

biomass, reduce hazardous fuels, improve forest health, and enhance growth in young 

growth stands, achieving multiple resource objectives;

 Working with the USFS, 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;

 Engaging in several collaborative efforts to maintain and enhance ecosystem function,

such as the Medford Small Log Collaborative, Tillamook Watershed restoration projects, 

and Klamath Falls small diameter log and juniper utilization; and

 Improving efficiencies, and where appropriate, taking advantage of The Good Neighbor 

Authority which was expanded for use to all States in the Consolidated Appropriations 

Act, 2014 (P.L.113-76)

2015 Program Performance

In 2015, the Reforestation and Forest Development Program will:

 Assure that post-fire reforestation efforts continue as harvesting of salvage timber sale 

areas is completed 

 Treat a total of approximately 12,000 acres of matrix and forest reserve forests to assure 

adequate growth and habitat development.

 Monitor over 40,000 acres post-treatment.

 Inventory over 30,000 acres of forest or woodland vegetation.

 Inventory over 20,000 acres for the presence of invasive or noxious weeds.

 Treat over 5,000 acres of noxious and invasive weeds or pathogens, including the 

fungus involved in sudden oak death.

 Produce 1,000 pounds of Improved Seed from western Oregon seed orchards. 

 Summarize use of LiDAR technology and its cost-effective benefits for decision-makers.
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 27

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Other Forest Resource 

Mgmt

$000 34,672 36,985 +140 +0 -4,410 32,715 -4,270

FTE 255 255 +0 -24 231 -24

Summary of 2015 Program Changes for Other Forest Resource 

Mgmt: ($000) FTE

General Program Decrease -4,410 -24 

Total -4,410 -24 

Justification of 2015 Program Changes

The 2015 budget request for the Western Oregon Other Forest Management Program is 

$32,715,000 and 231 FTE, a program change of -$4,410,000 and -24 FTE from the 2014

enacted level.

General Program Decrease (-$4,410,000/-24 FTE) – A decrease of $4.4 million will reduce a 

range of activities, including inventory and monitoring, rangeland health assessments and 

restoration projects, and activities in support of recreation. Additional cost savings are expected 

by primarily thinning stands less than 80 years old, where less pre-disturbance surveys are 

needed.

Program Overview

The O&C Grant Lands Other Forest Resources Management Program includes funding for four 

programs critical to effective multiple-use management across BLM lands in western Oregon:

Rangeland Management; Recreation Management; Soil, Water and Air Management; and 

Wildlife and Fish Habitat Management.

In western Oregon, the BLM addresses public demand for recreation, clean water and 

productive soil, while managing for the sustained yield timber production as required by the 

Oregon and California Act of 1937. Additionally, this program provides necessary funding 

supporting fish and wildlife environmental clearances related to this management of BLM 

forestlands in western Oregon. This program supports species and habitat management and 

associated data collection, aquatic restoration for clean water and fish habitat, as well as the 

timber sale program in the form of surveys, clearances, interdisciplinary team participation, and 

environmental assessment preparation. In turn, the Forest Management Program supports 

habitat management within the reserve land use allocations designed to benefit fish and wildlife 

species in the long term.

Critical Factors – Rangeland Management – Coordination with permittees, private landowners, 

county, State and Federal agencies to integrate best management practices and mitigation 

measures to reduce the spread of noxious weeds. Utilize approved herbicides and mechanical 

means to improve habitat.

Activity: Western Oregon Resources 

Management

Subactivity: Other Forest Resources Management
2015 Budget Justifications Bureau of Land Management

Page IX - 28 Chapter IX – Oregon & California Grant Lands

 Recreation Management - Road maintenance continues to be a challenge throughout 

much of the O&C lands. With less harvest activities over the past two decades, regular 

maintenance of haul routes associated with timber sales has been reduced. As a result, 

many roads that were accessible in the past are now threatened with encroachment of 

thick vegetation and slough and slide material that has closed some road systems. This 

has reduced access for forest management activities and reduced access to the public 

for recreation opportunities.

 Soil, Water, and Air Management – Coordination with county, State, and Federal 

agencies to assure compliance with the regulatory framework. Address climate change 

concerns at the appropriate scale. 

 Fish and Wildlife Management – Coordination with regulatory agencies to complete 

necessary surveys to assess biological impacts in support of proposed forest 

management activities. Coordinate implementation at the appropriate scale to meet 

Endangered Species Act, Clean Water Act, and other regulatory requirements.

Means and Strategies – The Other Forest Resources Management Program uses 

collaborative cooperative conservation principles, engaging commodity users, private groups, 

local communities, government agencies, and other stakeholders when planning and 

implementing management activities.

The BLM biologists in western Oregon consult closely with their FWS counterparts to implement 

an array of forest management and other resource restoration projects. The BLM works with the 

USFS to implement an interagency Special Status Species Program and Clean Water Act 

compliance activities that extend across administrative boundaries. Applying the concept of 

Service First and sharing skills accommodates an interagency approach toward resource 

conservation. Partnering improves administrative efficiencies, and decreases the cost of 

program administration. In the Soil, Water and Air Management Program, key partnerships with 

the USFS, EPA, and Oregon Department of Environmental Quality have contributed toward 

administrative streamlining, restoration prioritization, and water quality standard updates- all of 

which contribute to the BLM’s role as a Designated Management Agency under the Clean 

Water Act.

The BLM also partners with The Nature Conservancy, NatureServe, and local watershed 

councils to share data and planning strategies that extend across private, State, and Federal 

jurisdictions. Additionally, the management of invasive species benefits from coordination with 

other landowners and land management agencies to control the spread of noxious weeds in 

high-priority habitats. Eradication efforts focus on rapid detection and an early response and 

prevention, including seeking approval for the use of additional and more effective herbicides.

The Soil, Water and Air Management Program in western Oregon is focused on designing 

projects and implementing BLM Water Quality Restoration Plan objectives. These objectives

emphasize the protection of drinking water sources, improvement of aquatic species habitat, 

restoring of water quality, and improving aquatic and riparian conditions while incorporating 

stakeholder input and involvement in development of program priorities. The program involves 

long-term coordination and collaboration with the fisheries and riparian management programs 

of multiple agencies and landowners. The program is tasked with managing for soil stabilization, 

health and productivity; impacts from invasive species to riparian and upland habitat; upland 

forest and rangeland health; habitat for sensitive species; and the Bureau’s wild and scenic 

rivers.
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 29

Much of the work involves assessment, monitoring, and restoring of watersheds to comply with 

the Clean Water Act and the Safe Drinking Water Act. This is accomplished through 

development and implementation of restoration projects and activities defined within the context 

of water quality restoration plans, which support the State of Oregon’s Total Maximum Daily 

Loads program. 

Additionally, the program funds studies necessary to establish in-stream flows that are required 

to support wild and scenic river outstandingly remarkable values; work to obtain or maintain 

Federal reserve water rights, and inter-agency agreements with the United States Geological 

Survey and Oregon State University to develop flow and water quality monitoring data 

necessary for developing NEPA planning documents.

2015 Program Performance

The Rangeland Program consists of 95 grazing allotments (52 active and 43 vacant) covering 

about 352,000 acres of the Medford District, and 11 allotments covering about 14,400 acres in 

the Klamath Resource Area, Lakeview District. Nine allotments in the Medford District providing

2,714 Animal Unit Months of forage are partially or completely within the Cascade-Siskiyou 

National Monument (CSNM). In 2015, the O&C Rangeland Management program proposes to:

 Issue 5-6 grazing allotment permits/leases;

 Maintain 49 grazing use authorizations;

 Complete 15 shrub, grassland, woodland and forest projects related to range 

management;

 Monitor 5 grazing allotments;

 Inspect 8 grazing allotments for compliance; and

 Complete three Land Health Evaluations.

The America’s Great Outdoors Initiative continues to be a focus in 2015. The O&C Recreation 

Management program promotes and expands outdoor recreation opportunities for youth and 

supports the Secretary’s Youth in the Great Outdoors Initiative. Another high priority will be 

improving public access and protecting resources through Comprehensive Travel and 

Transportation Management. The BLM will manage rivers and trails to protect their special 

values, minimize user conflicts, promote a quality recreational experience in a preferred setting, 

and promote public safety. In 2015, the O&C Recreation Management Program proposes to:

 Inventory Recreation Resources on over 2,000 acres;

 Assess 200 Linear Miles of Recreation Resources;

 Assess 45 Nationally Designated Rivers and Trails;

 Prepare 3 Recreation Activity Plans;

 Process 275 Commercial and Group Special Recreation Permits;

 Issue and Manage over 40,000 Recreation Use Permits;

 Evaluate Recreation Areas on over 12,000 acres; and

 Monitor over 250 acres of Wilderness and Wilderness Study Areas.

The O&C Soil, Water, and Air Management program supports the Energy Policy Act of 2005

through involvement in the Federal Energy Regulatory Commission re-licensing process. 

In 2015, the O&C Soil, Water and Air Management Program proposes to: 

 Inventory over 100 water resources
2015 Budget Justifications Bureau of Land Management

Page IX - 30 Chapter IX – Oregon & California Grant Lands

 Monitor air resources/climatic conditions at over 10 sites

 Monitor over 100 water resources 

The Western Oregon Wildlife and Fish Habitat Program combines habitat management and 

habitat restoration actions for fish, wildlife and botany with inventory and monitoring for key 

species of management concern. Management for, and monitoring of, specific habitat conditions 

to meet the requirements of the NWFP and the latest Survey and Manage guidance are critical 

elements of the program. The program supports the Forest Management and the Reforestation 

and Forest Development Programs through pre-disturbance surveys, project level NEPA 

analysis and appropriate consultation of proposed treatments. The program is responsible 

under the 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 management emphasis includes a partnership with the USFS to monitor 

northern spotted owl populations and increasing old-growth forest characteristics within the 

Late-Successional Reserve. Fisheries management emphasis is on continued cooperation with 

the Oregon Watershed Enhancement Board, watershed councils and the National Marine 

Fisheries Service to improve habitat for Pacific salmon species.

Some work is focused on identifying priority watersheds from a landscape perspective to 

increase effectiveness of restoration efforts in contributing to recovery of listed salmonids. 

Identifying priority watersheds in conjunction with other Federal and State partners allows for 

identification of areas with overlapping priorities and the opportunity to form partnerships that 

leverage additional resources.

In 2015, the O&C Wildlife and Fish Habitat Management program proposes to: 

 Inventory over 150 miles of streams and riparian areas;

 Inventory over 40,000 acres of wildlife and plant habitat;

 Implement 45 species recovery and conservation actions;

 Monitor over 50 acres of lake and wetland habitat;

 Monitor 2,000,000 acres of terrestrial habitat; and

 Monitor over 600 species populations.
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 31

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Resource Mgmt Planning $000 5,338 7,140 +8 +0 -4,183 2,965 -4,175

FTE 39 24 +0 -10 14 -10

Summary of 2015 Program Changes for Resource Mgmt Planning: ($000) FTE

Anticipated Plan Completions -4,183 -10 

Total -4,183 -10 

Justification of 2015 Program Changes

The 2015 budget request for the Western Oregon Resource Management Planning Program is 

$2,965,000 and 14 FTE, a program change of -$4,183,000 and -10 FTE from the 2014 enacted

level. 

Planned Completion of Six Resource Management Plans (-$4,183,000 /-10 FTE) –The BLM 

plans to complete the six revised RMPs in June 2015. As final environmental impact statements 

are released and decisions are signed, the program’s emphasis will be to meet the completion 

schedule and supporting plan implementation.

Program Overview

The Western Oregon Resource Management Planning Program emphasizes the development, 

implementation, and maintenance of Resource Management Plans for BLM-managed land in 

western Oregon communities.

Program Components – As part of the Secretary’s Western Oregon Strategy, the BLM initiated 

the revision process for its Western Oregon Resource Management Plans (RMP) in 2012.

These efforts draw upon many developments since the Secretary withdrew the previous 2008 

Land Use Plans for the six western Oregon BLM districts. These efforts include:

 Assuring compliance with applicable laws, regulations, and policies, including, but not 

limited to, the O&C Act, the National Environmental Policy Act (NEPA), the Federal Land 

Policy and Management Act, the Endangered Species Act, and the Clean Water Act;

 Completing environmental assessments, categorical exclusions, and determinations of 

NEPA adequacy as appropriate for project implementation;

 Responding to protests, appeals and lawsuits associated with projects and NEPA 

documents; and deploying and implementing e-planning.

The revision efforts involve landscape-scale spatial analysis done by a team of BLM employees 

and contractors, updated economic analyses and logistical support for team members. It will be 

possible to draw upon some existing analysis tools and the geo-spatial data base gained from 

Activity: Western Oregon Resources 

Management

Subactivity: Resource Management Planning
2015 Budget Justifications Bureau of Land Management

Page IX - 32 Chapter IX – Oregon & California Grant Lands

the 2008 western Oregon plan revisions reducing the overall cost and the time needed to 

complete the plan revision efforts.

Critical Factors – The revised RMPs are planned for completion in June 2015. Litigation over 

the 2008 planning effort, the NWFP and the BLM’s western Oregon timber sale program 

continues. Recent developments related to western Oregon planning include:

 On-going litigation associated with the 2008 planning effort;

 A new Recovery Plan for the northern spotted owl (2011);

 Final Critical Habitat Rule for the northern spotted owl (2012); and

Revised critical habitat for the marbled murrelet; and Secretarial Pilot Projects to employ 

the forestry ecological principles developed by Doctors Norm Johnson and Jerry 

Franklin.

The RMP revisions will consider this new information in western Oregon, including lessons 

learned from the prior effort to revise these RMPs. Until completion of the new RMPs, western 

Oregon forest management projects will comply with the existing 1995 RMPs as well as the new 

regulatory framework.

Means and Strategies – The BLM uses collaboration and facilitation tools to assure input from 

stakeholders for the new RMPs, and independent facilitators are being used at multiple levels.

To assist in this process, the BLM engaged the DOI’s Office of Collaborative Action and Dispute 

Resolution (CADR) to assist them with reaching an interagency ESA consultation agreement 

with US Fish and Wildlife Service and the National Marine Fisheries Service for the new RMPs.

Regionally, the BLM has drawn together a group of over 25 different cooperators who continue 

to assist the BLM by providing strategic input into the plans. The Western Oregon Resource 

Management Planning program supports implementation of NEPA by providing a network of 

planning experts who provide oversight and extensive advice and review of the various NEPA 

documents to assure compliance with the existing Resource Management Plans. High-quality 

NEPA documentation is a critical step in agency decision-making and project implementation. In 

the implementation of project environmental assessments, the BLM anticipates some 

streamlining in project development and implementation.

2015 Program Performance

In 2015, the Western Oregon Resource Management Planning Program proposes to:

 Continue planning activities and support implementation and monitoring of existing 

RMPs and NWFP;

 Incorporate recommendations of the Western Oregon Task Force, appointed by the 

Secretary to advise the BLM and FWS on future planning efforts for the O&C 

timberlands, into the new plan revision effort;

 Incorporate the latest Survey and Manage guidance, the 2011 Northern Spotted Owl 

Recovery Plan and the 2012 Critical Habitat designation into the ongoing planning effort;

 Finalize the EIS for the new planning effort by summer 2015; and

 Respond to any protest and finalize the Record of Decision for the new RMPs for the six

western Oregon Districts.
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 33

Activity: Western Oregon Information & Data 

Systems 

Subactivity: Western Oregon Information Systems 

Operation & Maintenance

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Info. & Resource Data 

Systems

$000 1,822 1,923 +5 +0 -156 1,772 -151

FTE 17 11 +0 -2 9 -2

Summary of 2015 Program Changes for Info. & Resource Data Systems: ($000) FTE

General Program Decrease -156 -2 

Total -156 -2 

Justification of 2015 Program Changes

The 2015 budget request for the Western Oregon Information Systems Operation and 

Maintenance Program is $1,772,000 and 9 FTE, a program change of -$156,000 and -2 FTE 

from the 2014 enacted level. 

General Program Decrease (-$156,000/-2 FTE) – The BLM is reducing funding for this 

program as the Department and its bureaus continue to implement plans associated with the 

DOI IT Transformation (ITT) initiative as outlined in Secretarial Order 3309. The BLM is relying 

on efficiency gains to reduce the impact of the reduced funding. 

Program Overview

This program deploys hardware and software necessary to implement Resource Management 

Plans, develops data sets supporting decision-making, and provides technology for resource 

management, such as mobile geographic information system (GIS) and internet mapping 

services. This program manages infrastructure, including workstations, networks, Web services 

and software applications, and ensures system security, integrity and reliability.

Means and Strategies – The BLM instituted corporate spatial data standards to ensure GIS 

data integrity, facilitate integration with partners, and implement Web-based collaboration and 

mapping tools to enhance access and communication. In 2015, the BLM will continue to 

centralize management of IT support services. Efforts will continue under Service First to align 

the GIS functions and leverage BLM and U.S. Forest Service (USFS) data resources to reduce 

costs to both agencies, facilitate knowledge transfer, and standardize data and procedures.

Other Funding Sources

Public Domain Forest Management funding in the Management of Lands and Resources 

Appropriation also supports the maintenance and development of the suite of Forest 

Management databases within the Forest Information Database Systems.
2015 Budget Justifications Bureau of Land Management

Page IX - 34 Chapter IX – Oregon & California Grant Lands

2015 Program Performance

In 2015, western Oregon’s BLM Information Technology program proposes to support the 

following:

 Operations and maintenance for various state and national applications (software) to 

monitor multiple resource data including fish and wildlife populations and sites, 

recreational use and permits, special status species, cultural information, forest 

inventory, hydrology and riparian information, and other databases. 

 Continue programming the interface between CBS (Collection and Billing System) and 

TSIS (Timber Sale Information System). This program will interface timber sale contract 

financial information including billing and collections with BLM’s National financial 

systems (CBS). The interface is expected to go live in October of 2014.

 Remote sensing support for LiDar (Light Detection and Ranging) data to facilitate 

resource management and analysis.

 Regular upgrading and/or replacement of computer hardware (i.e. personal computers, 

radios, phones, storage).
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 35

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

NMs & NCAs $000 709 748 +5 +0 +0 753 +5

FTE 5 9 +0 +0 9 +0

Justification of 2015 Program Changes

The 2015 budget request for the Western Oregon National Monuments & National Conservation 

Areas Program is $753,000 and 9 FTE.

 

Program Overview

The Cascade Siskiyou National Monument (CSNM) in southwestern Oregon and the Yaquina 

Head Outstanding Natural Area (YHONA) located in the central coast near Newport, Oregon, 

are the two units that comprise the Western Oregon National Monuments and National 

Conservation Areas program. These are both units of the BLM National Landscape 

Conservation System (NLCS).

Critical Factors – In support of NLCS goals, in 2015 the BLM will focus on these critical factors: 

 Law Enforcement Presence and Visibility — Law enforcement is a key factor in ensuring 

visitor safety and protecting fragile or rare geologic, archeological, paleontological, and 

biological resources. Threats include vandalism of natural features, archeological sites, 

facilities, and theft of irreplaceable archeological and paleontological resources.

 Critical Inventories and Monitoring Programs — Inventories define the critical resource 

values representative of each unit’s uniqueness, and the information provided is 

essential to the development and implementation of management plans.

 Restoration — Both CSNM and YHONA are home to a variety of ecosystems. These 

areas contribute to protection and restoration of native plant and animal communities, 

including riparian habitats, corridors, and migration routes, to sustain and conserve 

public land resources affected by climate change, altered fire regimes, and invasive 

species.

 Comprehensive Travel and Transportation Management — Unmanaged recreation use 

continues to impact resources in the monuments through increased erosion, vegetative 

damage, spread of weeds and invasive plants, and impacts to wildlife habitat.

 Visitor and Community Education — Interpretation and environmental education improve 

visitor experiences, providing information about the cultural, ecological, and scientific 

values of units and the BLM’s balanced resource mission.

Activity: Western Oregon National 

Landscape Conservation System

Subactivity: National Monuments & National 

Conservation Areas
2015 Budget Justifications Bureau of Land Management

Page IX - 36 Chapter IX – Oregon & California Grant Lands

 Maintenance and Operations of Recreation Facilities — The program supports a number 

of education and visitor centers along with other facilities to enhance the visitor 

experience in the natural setting.

 Supporting Soda Mountain Wilderness Stewardship Plan Implementation – The BLM will 

continue to implement the new plan, including activities such as decommissioning former 

roads, conducting roads-to-trails projects, removing unneeded grazing management 

facilities and other human infrastructure, and other “re-wilding” projects.

Means and Strategies – Both the CSNM and the YHONA work with volunteers, partners, and 

communities. The BLM works closely with the public to ensure that recreation in these units 

meets the needs of user groups while remaining compatible with the values for which each unit 

was designated.

2015 Program Performance

To fulfill the goals of the NLCS program at CSNM and YHONA, the BLM will:

• Manage monuments and conservation areas to conserve, protect, and restore the values for 

which they were designated, as guided by each unit’s enabling legislation or proclamation;

• Manage valid existing rights and compatible uses;

• Support and encourage scientific study and research, while ensuring that research 

methodologies conserve and protect resources;

• Develop and maintain partnerships with local, State, Federal, and tribal government 

agencies, as well as scientists, local communities, public land users, non-governmental 

organizations, and the public; and

• Recognize gateway communities as vital links to monuments and conservation areas and 

where practical, locate developed recreation and interpretive facilities adjacent to NLCS

lands.
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 37

Budget Schedules – Current Law

Account Symbol and Title

14X1116

Oregon and California Grant Lands Line 2013 Act 2014 CY 2015 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Western Oregon Maintenance 0002 10 10 9

 Western Oregon Resource Management 0004 97 97 94

 Western Oregon Data Systems Operation & 

Management 0005 2 2 2

 Western Oregon National Monuments & NCA 0006 1 2 2

Total new obligations 0900 110 111 107

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 3 3 6

 Recoveries of prior year unpaid obligations 1021 4 0 0

 Unobligated balance (total) 1050 7 3 6

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 112 114 104

 Appropriations permanently reduced 1130 -6 0 0

 Appropriation, discretionary (total) 1160 106 114 104

 Discretionary, Appropriations Committee

 Appropriation [O&C] 1160-40 112 114 104

 Baseline Civilian Pay 1160-50 76 80

 Baseline Non-Pay 1160-50 38 39

 Appropriation [Text] 1160-40 -6 0 0

 Baseline Non-Pay 1160-50 0 0

Total budgetary resources available 1930 113 117 110

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 3 6 3

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 48 46 43

 Obligations incurred, unexpired accounts 3010 110 111 107

 Outlays (gross) 3020 -108 -114 -109

 Recoveries of prior year unpaid obligations, 

unexpired 3040 -4 0 0

 Unpaid obligations, end of year 3050 46 43 41
2015 Budget Justifications Bureau of Land Management

Page IX - 38 Chapter IX – Oregon & California Grant Lands

Budget Schedules – Current Law

Account Symbol and Title

14X1116

Oregon and California Grant Lands Line 2013 Act 2014 CY 2015 BY

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 48 46 43

 Obligated balance, end of year 3200 46 43 41

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 106 114 104

 Outlays, gross:

 Outlays from new discretionary authority 4010 78 84 77

 Outlays from discretionary balances 4011 30 30 32

 Outlays, gross (total) 4020 108 114 109

 Budget authority, net (discretionary) 4070 106 114 104

 Outlays, net (discretionary) 4080 108 114 109

Budget authority, net (total) 4180 106 114 104

Outlays, net (total) 4190 108 114 109

 Direct Federal programs:

 Budget Authority 2004-01 106 114 104

 Outlays 2004-02 108 114 109

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 48 48 47

 Other than full-time permanent 11.3 4 5 5

 Other personnel compensation 11.5 1 2 2

 Total personnel compensation 11.9 53 55 54

 Civilian personnel benefits 12.1 18 17 16

 Travel and transportation of persons 21.0 1 1 1

 Transportation of things 22.0 3 1 1

 Communications, utilities, and miscellaneous 

charges 23.3 2 2 2

 Advisory and assistance services 25.1 1 1 1

 Other services from non-Federal sources 25.2 16 13 12

 Other goods and services from Federal sources 25.3 3 3 3

 Operation and maintenance of facilities 25.4 1 3 3

 Operation and maintenance of equipment 25.7 2 2 2

 Supplies and materials 26.0 2 3 3

 Equipment 31.0 2 5 4

 Land and structures 32.0 1 0 0

 Grants, subsidies, and contributions 41.0 5 5 5

 Total new obligations 99.9 110 111 107

Employment Summary (Q)
Bureau of Land Management 2015 Budget Justifications

Chapter IX – Oregon and California Grant Lands Page IX - 39

Budget Schedules – Current Law

Account Symbol and Title

14X1116

Oregon and California Grant Lands Line 2013 Act 2014 CY 2015 BY

Direct civilian full-time equivalent employment 1001 795 794 754

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-1116] 1000 103,957
2015 Budget Justifications Bureau of Land Management

Page IX - 40 Chapter IX – Oregon & California Grant Lands

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Range Improvements 

 

Bureau of Land Management 2015 Budget Justifications

Chapter X – Range Improvements Page X - 1

Range Improvements

Appropriations Language

For rehabilitation, protection, and acquisition of lands and interests therein, and improvement of 

Federal rangelands pursuant to section 401 of the Federal Land Policy Management Act of 

1976 (43 U.S.C. 1751), notwithstanding any other Act, sums equal to 50 percent of all moneys 

received during the prior fiscal year under sections 3 and 15 of the Taylor Grazing Act (43 

U.S.C. 315(b), 315(m)) 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, 2014.)

Appropriations Language Citations

Section 401 of Federal Land Policy & Management Act (FLPMA) (43 U.S.C. 1751), as 

amended by the Public Rangelands Improvement Act of 1978 (43 U.S.C. 1901-1905),

provides that 50 percent of all moneys received by the U.S. as fees for grazing domestic 

livestock on public land under the Taylor Grazing Act (43 U.S.C. 315) and the Act of August 28, 

1937 (43 U.S.C. 1181d) shall be credited to a separate account in the Treasury and made 

available for the purpose of on-the-ground range rehabilitation, protection, and improvements, 

including, but not limited to, seeding and reseeding, fence construction, weed control, water 

development, and fish and wildlife habitat enhancement.

Taylor Grazing Act of 1934 (43 U.S.C 315) as, amended by the Act of August 28, 1937 (43 

U.S.C. 1181d), authorizes the establishment of grazing districts, regulation, and administration 

of grazing on the public lands, and improvement of the public rangelands. It also authorizes the 

Secretary to accept contributions for the administration, protection, and improvement of grazing 

lands, and establishment of a trust fund to be used for these purposes.

Authorizations

7 U.S.C. 1010 (the Bankhead Jones Farm Tenant Act of 1937), provides that the Secretary of 

Agriculture is authorized and directed to develop a program of land conservation and utilization 

in order to correct maladjustments in land use, and thus assist in controlling soil erosion, 

conducting reforestation, preserving natural resources, protecting fish and wildlife, developing 

and protecting recreational facilities, mitigating floods, preventing impairment of dams and 

reservoirs, conserving surface and subsurface moisture, protecting the watersheds of navigable 

streams, and protecting the public land, health, safety, and welfare; but not to build industrial 

parks or establish private industrial or commercial enterprises.

Executive Orders 10046, et al., provide that land under the jurisdiction of the Secretary of 

Agriculture under the provision of §32 of the Bankhead Jones Farm Tenant Act is transferred 

from the Department of Agriculture to the Department of the Interior for use, administration, or 

exchange under the applicable provisions of the Taylor Grazing Act.

30 U.S.C. 355, provides that all mineral leasing receipts derived from leases issued under the 

authority of the Mineral Leasing Act for Acquired Lands of 1947 shall be paid into the same 
2015 Budget Justifications Bureau of Land Management

Page X - 2 Chapter X – Range Improvements

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 2015 Budget Justifications

Chapter X – Range Improvements Page X - 3

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Public Lands Improvements 29 8,080 29 7,590 +0 - +0 - +589 29 8,179 - +589 

Farm Tenant Act Land Improvements 7 1,410 7 1,690 +0 - +0 - +131 7 1,821 - +131 

Administrative Costs - [570] - [557] +0 - +0 - [+43] - [600] - [+43]

Range Improvements 36 9,490 36 9,280 +0 - +0 - +720 36 10,000 - +720 

Notes:

Summary of Requirements

(dollars in thousands)

- Change in Range Improvementsbetween 2014 and 2015 reflects the change in available appropriations between 2014 and 2015 due to sequester in 2014, not a request for an increase in appropriated funds

- 2014 amount for Range Improvements includes 7.2% sequester pursuant to Section 254 of the Balanced Budget and Emergency Deficit Control Act of 1985, as amended

2013 Actual

2014 Enacted 

(includes 

sequester) Fixed 

Cost

Transfers Program Changes

 Requested 

Amount 

2015 President's Budget

Change from 2014 

Enacted
2015 Budget Justifications Bureau of Land Management

Page X - 4 Chapter X – Range Improvements

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Bureau of Land Management 2015 Budget Justifications

Chapter X – Range Improvements Page X - 5

Appropriation: Range Improvements

2013 

Actual

2014 

Enacted

2015 President's Budget Change 

from 

2014

Fixed 

Cost Transfers Program Changes

Requested 

Amount

Public Lands 

Improvements

$000 8,080 7,590 +0 +0 +589 8,179 +589

FTE 29 29 +0 +0 29 +0

Farm Tenant Act Land 

Improvements

$000 1,410 1,690 +0 +0 +131 1,821 +131

FTE 7 7 +0 +0 7 +0

Administrative Costs $000 [570] [557] +0 +0 [+43] [600] [+43]

Range Improvements $000 9,490 9,280 +0 +0 +720 10,000 +720

FTE 36 36 +0 +0 36 +0

Notes: - 2014 amount for Range Improvements includes 7.2% sequester pursuant to Section 254 

of the Balanced Budget and Emergency Deficit Control Act of 1985, as amended

- Change in Range Improvements between 2014 and 2015 reflects the change in available 

appropriations between 2014 and 2015 due to sequester in 2014, not a request for an 

increase in appropriated funds

Justification of 2015 Program Changes

The 2015 budget request for the Range Improvement Account is $10,000,000 and 36 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. Areas identified 

through land health evaluations are prioritized at the district level for funding. Examples of areas 

not achieving rangeland health standards could be riparian areas functioning at-risk with a 

downward trend, areas with unacceptable plant community composition including areas invaded 

by noxious and invasive weeds or other invasive species, or areas with unnaturally high 

amounts of exposed soil that would be subject to accelerated erosion.

Healthy landscapes in the West today are at greater risk due to more intense and extended 

droughts, increasing wildfire frequency, and continuing migration of invasive species. Range 

Improvement funds also provide field offices with the flexibility to address changing resource 

conditions such as drought, wildfire, newly listed species, critical habitat, and candidate species 

such as sage-grouse.

 

Means and Strategies – The BLM uses funding from the Range Improvement Account in 

addition to funding from other programs and contributions from permittees and partner 

organizations to support rangeland health. The amount of funding the BLM is able to leverage 

from partners and stakeholders is a factor used to help prioritize projects for funding. Other 

workload priorities such as wildfire, droughts, floods, or litigation can affect the BLM’s ability to 
2015 Budget Justifications Bureau of Land Management

Page X - 6 Chapter X – Range Improvements

complete range improvement projects. Project prioritization is based on resource issues, such 

as protection of sensitive species through management of sage-grouse habitat, reduction of 

wildfire risks through the management of fuel loads, and coordination with post-fire rehabilitation 

efforts to help manage the spread of invasive or noxious weeds.

Funding for the Range Improvement 

Appropriations – Fifty percent of the 

grazing fees collected on public lands, or 

$10.0 million, whichever is greater, is 

appropriated annually into the Range 

Improvement Account. Funding is 

distributed to the BLM grazing districts 

according to where the receipts were 

collected. This funding remains available 

until exhausted and is to be used for onthe-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.

Grazing Fees – Grazing fees are set 

each year under the authority of FLPMA and the Public Range Improvement Act. The fee for 

2014 will remain $1.35 per Animal Unit Month (AUM), as announced on January 31, 2014. 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 differ from the proposed 

grazing permit administrative fee. More information on the Rangeland Management Program 

and the proposed cost recovery measure can be found in the MLR appropriation section.

2015 Program Performance

In 2015, the focus and priorities of the Range Improvement Account will remain as described in 

the overview section. It is estimated that approximately 18,000 acres would receive vegetation 

treatment, 300 new structural projects would be constructed, 250 existing projects would be reconstructed/maintained and 50,000 acres of weed treatment would be completed.

Installation of a cattleguard, in cooperation with the 

Colorado Parks and Wildlife, that provides access to 

the Arkansas Headwaters Recreation Area and 

prevents livestock from getting out onto the highway
Bureau of Land Management 2015 Budget Justifications

Chapter X – Range Improvements Page X - 7

Budget Schedules – Current Law

Account Symbol and Title

14X5132

Range Improvements Line

2013 

Act

2014 

CY

2015 

BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Public Lands Improvements 0001 9 8 8

 Farm Tenant Act Lands Improvements 0002 0 1 1

Total new obligations 0900 9 9 9

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 2 2 3

 Budget authority:

 Appropriations, mandatory:

 Appropriation (General Fund) 1200 3 3 3

 Appropriation (special or trust fund) 1201 7 7 7

 Appropriations and/or unobligated balance of appropriations 

permanently reduced 1230 -1 0 0

 Appropriations, mandatory (total) 1260 9 10 10

 Appropriations, mandatory - Computed Totals

1260-

20 9 10 10

 Mandatory, Appropriations Committee

 Appropriation [Indefinite]

1260-

40 3 3 2

 Baseline Civilian Pay

1260-

50 0 0

 Baseline Non-Pay

1260-

50 3 2

 Appropriation [Special Fund, Indefinite]

1260-

40 7 7 8

 Baseline Civilian Pay

1260-

50 3 3

 Baseline Non-Pay

1260-

50 4 5

 Mandatory, Authorizing Committee

 Appropriation [Text]

1260-

40 -1 0 0

 Baseline Non-Pay

1260-

50 0 0

 Effects of 2014 sequester

1260-

40 0 0 0

 Baseline Non-Pay

1260-

50 0 0

Total budgetary resources available 1930 11 12 13

 Memorandum (non-add) entries:
2015 Budget Justifications Bureau of Land Management

Page X - 8 Chapter X – Range Improvements

Budget Schedules – Current Law

Account Symbol and Title

14X5132

Range Improvements Line

2013 

Act

2014 

CY

2015 

BY

 Unexpired unobligated balance, end of year 1941 2 3 4

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 5 5 4

 Obligations incurred, unexpired accounts 3010 9 9 9

 Outlays (gross) 3020 -9 -10 -7

 Unpaid obligations, end of year 3050 5 4 6

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 5 5 4

 Obligated balance, end of year 3200 5 4 6

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 9 10 10

 Outlays, gross:

 Outlays from new mandatory authority 4100 4 4 4

 Outlays from mandatory balances 4101 5 6 3

 Outlays, gross (total) 4110 9 10 7

 Budget authority, net (mandatory) 4160 9 10 10

 Outlays, net (mandatory) 4170 9 10 7

Budget authority, net (total) 4180 9 10 10

Outlays, net (total) 4190 9 10 7

 Physical assets:

 Major equipment:

 Other physical assets:

 Direct Federal programs:

 Budget Authority

1352-

01 9 10 10

 Outlays

1352-

02 9 10 7

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 2 2 2

 Civilian personnel benefits 12.1 1 1 1

 Advisory and assistance services 25.1 1 1 1

 Other services from non-Federal sources 25.2 1 1 1

 Other goods and services from Federal sources 25.3 1 1 1

 Supplies and materials 26.0 1 1 1
Bureau of Land Management 2015 Budget Justifications

Chapter X – Range Improvements Page X - 9

Budget Schedules – Current Law

Account Symbol and Title

14X5132

Range Improvements Line

2013 

Act

2014 

CY

2015 

BY

 Land and structures 32.0 1 1 1

 Grants, subsidies, and contributions 41.0 1 1 1

 Total new obligations 99.9 9 9 9

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 36 36 36

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-5132] 1000 10,000
2015 Budget Justifications Bureau of Land Management

Page X - 10 Chapter X – Range Improvements

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Service Charges, 

Deposits and 

Forfeitures 

 

Bureau of Land Management 2015 Budget Justifications

Chapter XI – Service Charges, Deposits, and Forfeitures Page XI - 1

Service Charges, Deposits & Forfeitures

Appropriations Language

For administrative expenses and other costs related to processing application documents and 

other authorizations for use and disposal of public lands and resources, for costs of providing 

copies of official public land documents, for monitoring construction, operation, and termination 

of facilities in conjunction with use authorizations, and for rehabilitation of damaged property, 

such amounts as may be collected under Public Law 94–579 (43 U.S.C. 1701 et seq.), and 

under Section 28 of the Mineral Leasing Act (30 U.S.C. 185), to remain available until 

expended: Provided, That, notwithstanding any provision to the contrary of section 305(a) of 

Public Law 94–579 (43 U.S.C. 1735(a)), any moneys that have been or will be received 

pursuant to that section, whether as a result of forfeiture, compromise, or settlement, if not 

appropriate for refund pursuant to section 305(c) of that Act (43 U. S. C. 1735(c)), shall be 

available and may be expended under the authority of this Act by the Secretary to improve, 

protect, or rehabilitate any public lands administered through the Bureau of Land Management 

which have been damaged by the action of a resource developer, purchaser, permittee, or any 

unauthorized person, without regard to whether all moneys collected from each such action are 

used on the exact lands damaged which led to the action: Provided further, That any such 

moneys that are in excess of amounts needed to repair damage to the exact land for which 

funds were collected may be used to repair other damaged public lands. (Department of the 

Interior, Environment, and Related Agencies Appropriations Act, 2014.)

Appropriation Language Citations

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.

Authorizations

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.
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Page XI - 2 Chapter XI – Service Charges, Deposits, and Forfeitures

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. 
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Chapter XI – Service Charges, Deposits, and Forfeitures Page XI - 3

Summary of Requirements

(Dollars in Thousands)

Comparison

by Activity/

Subactivity

2013

Actual

2014

Enacted

2015

Change from 

2014

(+/ -)

Program 

Changes

(+/ -)

Budget 

Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Service Charges, 

Deposits, & 

Forfeitures

204 26,342 208 31,092 0 0 208 32,465 0 +1,373

Offsets -26,342 -31,092 0 0 -32,465 0 -1,373

Right-Of-Way 

Processing 120 13,209 119 16,900 0 0 119 17,646 0 +746

Energy and 

Minerals Cost 

Recovery

29 4,439 30 5,000 0 0 30 5,221 0 +221

Trans Alaska 

Pipeline 27 1,427 26 1,427 0 0 26 1,490 0 +63

Adopt-A-Horse 

Program 0 76 0 125 0 0 0 131 0 +6

Repair of 

Damaged Lands 9 1,943 18 2,950 0 0 18 3,080 0 +130

Cost Recoverable 

Realty Cases 3 964 4 1,000 0 0 4 1,044 0 +44

Timber Contract 

Expenses 0 36 1 40 0 0 1 42 0 +2

Commercial Film 

& Photography 

Fees

2 243 1 250 0 0 1 261 0 +11

Recreation Cost 

Recovery 6 3,731 4 2,500 0 0 4 2,610 0 +110

Copy Fee Account 8 274 5 900 0 0 5 940 0 +40
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Chapter XI – Service Charges, Deposits, and Forfeitures Page XI - 5

Program Overview

Rights-Of-Way Processing and Energy and Minerals Cost Recovery – The BLM recovers 

certain costs of processing documents related to rights-of-way, 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 that require fewer than 50 

Federal work hours). Processing fees for major category ROWs (those that require greater than 

50 Federal work hours) are based on reasonable costs (FLPMA) or actual costs (MLA). In

2013, BLM’s average cost to process a major category right-of-way application was slightly over 

$28,000; in 2014, it is $40,000. 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 2013; in 2014, it is $2,400. For these smallerscale 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 107,000 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 

fees to cover BLM’s costs of processing documents relating to its minerals programs. The new 

fees included costs of actions such as environmental studies performed by 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 
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Page XI - 6 Chapter XI – Service Charges, Deposits, and Forfeitures

preamble to the proposed rule at 70 FR 41533 and Solicitor's Opinion M-36987 (December 5, 

1996)).

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 removed from its public lands. In 2015, the BLM will offer animals 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 

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.
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Chapter XI – Service Charges, Deposits, and Forfeitures Page XI - 7

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 that 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 

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 and for responding to Freedom of 

Information Act requests. 
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Page XI - 8 Chapter XI – Service Charges, Deposits, and Forfeitures

Budget Schedules – Current Law

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures Line 2013 Act 2014 CY 2015 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Right-of-way processing 0001 15 14 14

 Energy and minerals cost recovery 0004 3 3 3

 Wild horse and burro cost recover 0005 0 2 2

 Repair of damaged lands 0006 2 4 4

 Cost recoverable realty 0007 1 1 1

 Recreation cost recovery 0008 3 2 2

 Copy fees 0009 2 1 1

 Trans Alaska Pipeline Authority 0011 3 4 4

Total new obligations 0900 29 31 31

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 48 46 46

 Budget authority:

 Appropriations, discretionary:

 Appropriation (special or trust fund) 1101 28 31 32

 Appropriations temporarily reduced 1132 -1 0 0

 Appropriation, discretionary (total) 1160 27 31 32

 Discretionary, Appropriations Committee

 Appropriation [Text] 1160-40 28 31 32

 Baseline Civilian Pay 1160-50 22 23

 Baseline Non-Pay 1160-50 9 9

 Appropriation [Text] 1160-40 -1 0 0

 Baseline Non-Pay 1160-50 0 0

Total budgetary resources available 1930 75 77 78

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 46 46 47

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 7 7 4

 Obligations incurred, unexpired accounts 3010 29 31 31

 Outlays (gross) 3020 -29 -34 -34

 Unpaid obligations, end of year 3050 7 4 1

 Memorandum (non-add) entries:
Bureau of Land Management 2015 Budget Justifications

Chapter XI – Service Charges, Deposits, and Forfeitures Page XI - 9

Budget Schedules – Current Law

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures Line 2013 Act 2014 CY 2015 BY

 Obligated balance, start of year 3100 7 7 4

 Obligated balance, end of year 3200 7 4 1

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 27 31 32

 Outlays, gross:

 Outlays from new discretionary authority 4010 15 16 16

 Outlays from discretionary balances 4011 14 18 18

 Outlays, gross (total) 4020 29 34 34

 Budget authority, net (discretionary) 4070 27 31 32

 Outlays, net (discretionary) 4080 29 34 34

Budget authority, net (total) 4180 27 31 32

Outlays, net (total) 4190 29 34 34

 Direct Federal programs:

 Budget Authority 2004-01 27 31 32

 Outlays 2004-02 29 34 34

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 14 14 14

 Other than full-time permanent 11.3 1 1 1

 Other personnel compensation 11.5 1 1 1

 Total personnel compensation 11.9 16 16 16

 Civilian personnel benefits 12.1 5 5 5

 Travel and transportation of persons 21.0 1 1 1

 Advisory and assistance services 25.1 0 1 1

 Other services from non-Federal sources 25.2 0 3 2

 Other goods and services from Federal sources 25.3 5 2 3

 Supplies and materials 26.0 2 1 1

 Land and structures 32.0 0 1 1

 Grants, subsidies, and contributions 41.0 0 1 1

 Total new obligations 99.9 29 31 31

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 204 208 208

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-5017] 1000 32,465
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Miscellaneous 

Permanent Payments 

 

Bureau of Land Management 2015 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII - 1

Miscellaneous Permanent Payments

Appropriations Language

No Appropriations Language

Explanation

The Permanent Payment Accounts provide for sharing specified receipts collected from the 

sale, lease, or use of the public lands and resources with States and counties. They do not 

require annual appropriations action. Amounts are estimated based on anticipated collections, 

or in some cases, upon provisions required by permanent legislation. The 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.
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Page XII - 2 Chapter XII – Miscellaneous Permanent Payments

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.
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Chapter XII – Miscellaneous Permanent Payments Page XII - 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.
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Page XII - 4 Chapter XII – Miscellaneous Permanent Payments

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, which is in FY2008.

Public Law 110-28 Provided one additional year of payments to Oregon & 

California Grant Lands and Coos Bay Wagon Road counties 

for 2007 to be made in 2008.

Public Law 110-343 Secure Rural Schools and Community Self-Determination Act 

payments were authorized to be made in 2009 through 2012 

(for 2008 through 2011) to Oregon & California Grant Lands 

and Coos Bay Wagon Road counties.

Public Law 112-141 Secure Rural Schools and Community Self-Determination Act 

payments were authorized to be made in 2013 (for 2012) to 

Oregon & California Grant Lands and Coos Bay Wagon Road 

counties.

Public Law 113-40 Secure Rural Schools and Community Self-Determination Act 

payments were authorized to be made in 2014 (for 2013) to 

Oregon & California Grant Lands and Coos Bay Wagon Road 

counties.

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. 
Bureau of Land Management 2015 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII - 5

Lincoln County 

Conservation, 

Recreation and 

Development Act (PL 

108-424)

Addresses a wide-range of public lands issues in Lincoln 

County, Nevada, designates as wilderness 768,294 acres of 

BLM-managed lands and releases from wilderness study area 

(WSA) status 251,965 acres of public land. The bill also 

directs the BLM to dispose of up to 90,000 acres of public 

land and divides the proceeds 85 percent to a Federal fund 

and 15 percent to State and county entities, establishes utility 

corridors, transfers public lands for State and county parks, 

creates a 260-mile OHV trail and resolves other public lands 

issues.

Public Law 109-432, 

White Pine County Land 

Sales

Authorizes the disposal through sale of 45,000 acres in White 

Pine County, Nevada, the proceeds of which are distributed 

as follows: (a) 5 percent for use in the general education 

program of the State of Nevada; (b) 10 percent shall be paid 

to the County for use for fire protection, law enforcement, 

education, public safety, housing, social services, 

transportation, and planning; and (c) the remaining 85 percent 

to be used to reimburse the BLM and DOI for certain costs, to 

manage unique archaeological resources, for wilderness and 

endangered species protection, for improving recreational 

opportunities in the County, and for other specified purposes.

Public Law 111–11, 

State Share, Carson 

City Land Sales 

Authorizes 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.
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Page XII - 6 Chapter XII – Miscellaneous Permanent Payments

Summary of Requirements

(Dollars in Thousands)

Comparison

by Activity/

Subactivity

2013

Actual 2014 Enacted

2015 Change

Program 

Changes (+/ -)

Budget

Request

from 2014

(+/-)

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Miscellaneous Permanent 

Payments Appropriation 

Total

13 41,974 13 48,559 0 -34,433 13 14,126 0 -34,433

Payments to States from 

Proceeds of Sales 628 605 +268 873 +268

Payments to States from 

Grazing Fees, etc. on 

Public Lands outside 

Grazing Districts

855 812 +63 875 +63

Payments to States from 

Grazing Fees, etc. on 

Public Lands within Grazing 

Districts

1,248 1,160 +90 1,250 +90

Payments to States from 

Grazing Fees, etc. on 

Public Lands within Grazing 

Districts, Misc.

21 10 +1 11 +1

Payments to Counties, 

National Grass Lands 

(Farm Tenant Lands) 

[5896]

572 548 +30 578 +30

Payments to Nevada from 

Receipts on Land Sales 

(includes 15%)

641 7,366 +3,173 10,539 +3,173

State Share, Carson City 

Land Sales 0 9 -9 0 -9

Secure Rural Schools 13 38,009 13 38,049 0 -38,049 13 0 0 -38,049

Payments to O&C 

Counties, Title I/III 34,054 34,089 -34,089 0 -34,089

Payments to Coos Bay 

Wagon Road Counties, 

Title I/III

281 281 -281 0 -281

Payments to O&C and 

Coos Bay Wagon 

Road Counties, Title II

13 3,674 13 3,679 0 -3,679 13 0 0 -3,679
Bureau of Land Management 2015 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII - 7

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 2014 and 2015 are estimated based 

on 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 2013 were 

$628,000. The estimated payments for 2014 and 2015 are $605,000 and $873,000 

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 payments for 2013 are $855,000 and estimated payments for 2014 and 

2015 are $812,000 and $875,000 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. The actual 

payments for 2013 are $1,248,000 and estimated payments for 2014 and 2015 are $1,160,000 

and $1,250,000 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. The actual payments for 2013 are $21,000 

and estimated payments for 2014 and 2015 are $10,000 and $11,000 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. The actual payments for 2013 are 

$572,000 and estimated payments for 2014 and 2015 are $548,000, and $578,000 respectively.

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 
2015 Budget Justifications Bureau of Land Management

Page XII - 8 Chapter XII – Miscellaneous Permanent Payments

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.)

The actual payments for 2013 are $641,000. Estimated payments for 2014 and 2015 are 

$7,366,000 and $10,539,000 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 $12,963,000 in 2013 from Nevada land sales and 

estimates collections from sales in 2014 and 2015 will be $51,600,000 and $66,700,000 

respectively. Some receipts from sales held in the latter half of one fiscal year are not collected 

in full until the next fiscal year because of normal delay in the acceptance of bids. 

Payments to Oregon and California Grant Lands Counties – Under the Oregon and 

California Act of 1937, BLM paid 50 percent of receipts from Federal activities on O&C lands 

(mainly from timber sales) to 18 counties in western Oregon. These revenues decreased since 

the 1980s due to changes in Federal timber policies. 

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393) was 

enacted on October 30, 2000. The Act was designed to provide a predictable payment to 

States and counties, in lieu of funds derived from Federal timber harvests. Payments were 

based on historical payments, adjusted for inflation. 

Payments to the 18 O&C counties were derived from: 

1. Revenues from Federal activities on O&C lands in the previous fiscal year that are not 

deposited to permanent operating funds such as the Timber Sale Pipeline Restoration or 

the Forest Ecosystem Health and Recovery, and, 

2. To the extent of any shortfall, out of any funds in the Treasury not otherwise appropriated. 

Under P.L. 106-393, and in the extensions of it, payments for a fiscal year were made in the 

following fiscal year. For example, payments for 2012 were made in 2013. 

Payments have been extended four times. Under the extensions, payments tend to be reduced 

each year, and they are not adjusted for inflation as they were under P.L. 106-393 during the 

first six years. 

P.L. 110-28 provided authorized payments for 2007 that were made in 2008. Payments in 2008 

were distributed among the counties in the same way as payments in 2007. Payments were 

limited to a total of $525,000,000 for both the BLM and the Forest Service, $100,000,000 from 

receipts and $425,000,000 from the General Fund. 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 
Bureau of Land Management 2015 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII - 9

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 in 2012 (for 2011) were calculated based on several factors that included 

acreage of Federal land, previous payments, and per capita personal income. The table below 

shows payments made from 2002 (for 2001) through the payments for 2012 (in 2013). The 

payments to the Coos and Douglas counties have followed the same pattern as payments to 

O&C counties under the Secure Rural Schools Act and extensions. 

In July 2012, Congress enacted Public Law 112-141, which extended the Secure Rural Schools 

Act of 2000. Public Law 112-141 provided an extension of payments to the O&C Grant Lands 

and the Coos Bay Wagon Road counties through fiscal year 2012 (with the payment to be made 

in2013). 

In October 2013, Congress enacted Public Law 113-40, which extends payments for one year 

to the O&C Grant Lands and the Coos Bay Wagon Road counties through fiscal year 2013 (with 

the payment to be made 2014). 

The Budget reflects a five-year reauthorization of the Secure Rural Schools Act with funding 

through mandatory U.S. Forest Service appropriations, starting with the payments for fiscal year 

2014 (which would be made in 2015). This SRS proposal revises the allocation split between 

the three portions of the program from the current authority emphasizing enhancement of forest 

ecosystems, restoration and improvement of land health and water quality and the increase of 

economic activity. For more information on this proposal, see the U.S. Forest Service 2015 

Budget Justification.

For any of the 18 counties in Western Oregon choosing not to receive payments for 2014 (in 

2015) 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 2014 (in 2015) 

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. 

The table below shows actual and estimated payments for 2001 through 2013. 

Secure Rural Schools Payments ($ in thousands)

Payments for 2001 in 2002 O&C CBWR Total

Amount from Receipts: $15,540 $330 $15,869

Amount from General Fund: $93,192 $618 $93,811

Total $108,732 $948 $109,680

Title I/III $101,085 $875 $101,960

Title II $7,647 $73 $7,720

Total $108,732 $948 $109,680

Payments for 2002 in 2003 O&C CBWR Total

Amount from Receipts: $11,519 $229 $11,748

Amount from General Fund: $98,083 $727 $98,809
2015 Budget Justifications Bureau of Land Management

Page XII - 10 Chapter XII – Miscellaneous Permanent Payments

Total $109,602 $956 $110,558

Title I/III $101,433 $834 $102,266

Title II $8,169 $122 $8,291

Total $109,602 $956 $110,558

Payments for 2003 in 2004 O&C CBWR Total

Amount from Receipts: $6,199 $51 $6,249

Amount from General Fund: $104,718 $917 $105,635

Total $110,917 $967 $111,884

Title I/III $102,468 $844 $103,312

Title II $8,449 $124 $8,572

Total $110,917 $967 $111,884

Payments for 2004 in 2005 O&C CBWR Total

Amount from Receipts: $11,935 $133 $12,068

Amount from General Fund: $100,424 $847 $101,271

Total $112,359 $980 $113,339

Title I/III $103,595 $936 $104,531

Title II $8,763 $44 $8,808

Total $112,359 $980 $113,339

Payments for 2005 in 2006 O&C CBWR Total

Amount from Receipts: $11,100 $251 $11,351

Amount from General Fund: $103,843 $751 $104,594

Total $114,943 $1,002 $115,946

Title I/III $106,123 $955 $107,077

Title II $8,820 $48 $8,868

Total $114,943 $1,002 $115,946

Note: Amounts may not add due to rounding

Payments for 2006 in 2007 O&C CBWR Total

Amount from Receipts: $11,720 $530 $12,250

Amount from General Fund: $104,373 $394 $104,767

Total $116,093 $924 $117,017

Title I/III $107,928 $924 $108,852

Title II $8,165 $88 $8,253

Total $116,093 $1,013 $117,105

Payments for 2007 in 2008* O&C CBWR Total

Amount from Receipts: $6,354 $297 $6,652

Amount from General Fund: $109,500 $713 $110,213

Total $115,854 $1,010 $116,865

Title I/III $110,873 $995 $111,868

Title II $4,982 $15 $4,997

Total $115,854 $1,010 $116,865

P.L. 110-28 extended Secure Rural Schools payments for one year. 
Bureau of Land Management 2015 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII - 11

Payments for 2008 in 2009 O&C CBWR Total

Amount from Receipts: $12,999 $312 $13,311

Amount from General Fund: $91,484 $599 $92,083

Total $104,483 $911 $105,394

Title I/III $95,870 $838 $96,708

Title II $8,614 $73 $8,686

Total $104,483 $911 $105,394

P.L. 110-343 extended Secure Rural Schools payments through 2011 with 

the final payment in 2012. 

Payments for 2009 in 2010 O&C CBWR Total

Amount from Receipts: $14,423 $248 $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

Note: Amounts may not add due to rounding

Payments for 2011 in 2012 O&C CBWR Total

Amount from Receipts: $11,575 0 $11,575

Amount from General Fund: $28,116 $346 $28,463

Total $39,691 $346 $40,037

Title I/III $35,992 $318 $36,310

Title II $3,699 $28 $3,727

Total $39,691 $346 $40,037

Payments for 2012 in 2013 O&C CBWR Total

Amount from Receipts: $11,521 $326 $11,847

Amount from General Fund: $26,162 $0 $26,162

Total $37,683 $326 $38,009

Title I/III $34,054 $281 $34,334

Title II $3,629 $45 $3,675

Total $37,683 $326 $38,009

Estimated Payments for 2013 in 2014 O&C CBWR Total

Amount from Receipts: $17,282 $281 $17,563

Amount from General Fund: $20,449 $38 $20,486 

Total $37,731 $318 $38,049 
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Page XII - 12 Chapter XII – Miscellaneous Permanent Payments

Title I/III $34,090 $281 $34,370 

Title II $3,641 $38 $3,679

Total $37,731 $318 $38,049 

P.L. 113-40 extended Secure Rural Schools payments through 2013 with the payment to be made in 

2014. The estimates assume that payments will be 95% of the full payment amount of $40,052 thousand 

for 2012 made in 2013. 

Note: Amounts may not add due to rounding
Bureau of Land Management 2015 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII - 13

2013 Total Payments of BLM Receipts to States and Counties

(in Dollars)

Taylor Grazing Act

State

a/

Mineral 

Leasing 

Act ROW 

payments

SEC. 15 

Outside 

Grazing 

Districts

SEC. 3 

Outside 

Grazing 

Districts

Other Proceeds 

of Sales Other Total Payments

Alaska 15,322 0 0 0 4,740 0 20,062 

Arizona 110,336 76,484 43,938 0 37,936 0 268,694 

California 718,045 53,026 13,428 0 40,472 0 824,971 

Colorado 347,052 30,941 61,624 9,110 20,177 0 468,904 

Idaho 31,892 19,651 171,787 0 7,550 0 230,880

Minnesota 0 0 0 0 175 0 175

Montana 59,331 116,744 132,751 0 32,730 

b/

564,163 905,719 

Nebraska 0 863 0 0 0 0 863 

Nevada 114,244 6,160 234,275 0 116,422 

c/

1,632,399 2,103,500 

New Mexico 1,788,895 137,456 206,566 15 173,832 7,834 2,314,598

North Dakota 56 6,201 0 0 305 0 6,562

Oklahoma 0 65 0 0 0 0 65 

Oregon 95,539 20,355 136,287 0 22,057 

d/ 

38,008,97

5 

38,283,213 

South Dakota 601 90,230 27 0 1,351 0 92,209

Utah 417,684 0 142,478 0 28,125 0 588,287

Washington 860 21,175 0 0 79,447 0 101,482

Wisconsin 0 0 0 0 38 0 38 

Wyoming 1,088,382 321,548 171,893 13,478 95,951 0 1,691,252 

Total 

4,788,239 900,899 1,315,054 22,603 661,308 40,213,37

1 

47,901,474

Note: The amounts shown above are outlays, some of which may be from prior year budget authority, and 

therefore, may be different than the amounts reported for fiscal year 2013 in the Summary of Requirements the 

at the beginning of this chapter.

a/ These are payments to States of 50 percent of mineral leasing rights-of-way rents. They are not reported in the 

Summary of Requirements table in this chapter because the Department of the Interior, Office of Natural 

Resource Revenues (ONRR), not BLM, includes these payments in accounting reports to Treasury. The 

Summary of Requirements amounts in the BLM Justifications tie to the amounts reported to Treasury by BLM. 

ONRR does not include the mineral leasing rights-of-way payments to States in the ONRR Budget Justifications. 

b/ LU lands under the Bankhead-Jones Farm Tenant Act (7 U.S.C. 1021)

c/ Payments to Clark County and the State of Nevada. 

d/ These are Secure Rural Schools and Community-Self-Determination Act payments to 18 counties in Western 

Oregon authorized by P.L. 106-393, as amended by P.L. 110-343, and P.L. 112-141. 
2015 Budget Justifications Bureau of Land Management

Page XII - 14 Chapter XII – Miscellaneous Permanent Payments

Budget Schedules – Current Law

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts

Line 2013 Act 2014 CY 2015 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Payments to O&C Counties, Title I/III 5884 0001 34 34 0

 Payment to O&C and CBWR Counties, Title II 5485 0003 5 4 0

 From grazing fees, etc., public lands outside 

grazing districts 5016

0004 1 1 1

 From grazing fees, etc., public lands within grazing 

districts 5032

0005 1 1 1

 Proceeds from sales 5133 0009 1 1 1

 Payments to counties from national grasslands 

5896

0010 1 1 1

 Payments to State and Counties from Nevada 

Land Sales

0013 1 7 11

 Payments to O&C counties under 1937 statute 0014 0 0 12

 Payments to CBWR counties under 1939 statute 0015 0 0 1

Total new obligations 0900 44 49 28

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 4 2 2

 Budget authority:

 Appropriations, mandatory:

 SRS O&C Payments from GF- Title I/III 1200 23 17 0

 SRS Payments from GF-Title II 1200 4 4 0

 SRS O&C Title I/III Payments from receipts 1201 12 17 0

 Proceeds of sales-payments to states 1201 1 1 1

 Payments from grazing fees outside grazing 

districts

1201 1 1 1

 Payments from grazing fees within grazing 

districts

1201 1 1 1

 Payments to Counties, National Grasslands, 

BLM

1201 1 1 1

 Payments from Nevada Land Sales 1201 1 8 11

 Payments to O&C Grants lands counties under 

1937 statute

1201 0 0 12

 Payments to CBWR counties under 1939 statute 1201 0 0 1

 Appropriations and/or unobligated balance of 

appropriations temporarily reduced

1232 -2 -1 0

 Appropriations, mandatory (total) 1260 42 49 28

 Appropriations, mandatory - Computed Totals 1260-20 42 49 28

 Mandatory, Authorizing Committee

 Appropriation [Text] 1260-40 42 50 28

 Baseline Civilian Pay 1260-50 1 0
Bureau of Land Management 2015 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII - 15

Budget Schedules – Current Law

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts

Line 2013 Act 2014 CY 2015 BY

 Baseline Non-Pay 1260-50 49 28

 Effects of 2014 sequester 1260-40 0 -1 0

 Baseline Non-Pay 1260-50 -1 0

Total budgetary resources available 1930 46 51 30

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 2 2 2

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 8 8 12

 Obligations incurred, unexpired accounts 3010 44 49 28

 Outlays (gross) 3020 -44 -45 -34

 Unpaid obligations, end of year 3050 8 12 6

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 8 8 12

 Obligated balance, end of year 3200 8 12 6

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 42 49 28

 Outlays, gross:

 Outlays from new mandatory authority 4100 1 39 22

 Outlays from mandatory balances 4101 43 6 12

 Outlays, gross (total) 4110 44 45 34

 Budget authority, net (mandatory) 4160 42 49 28

 Outlays, net (mandatory) 4170 44 45 34

Budget authority, net (total) 4180 42 49 28

Outlays, net (total) 4190 44 45 34

 Grants to State and local governments:

 Other than shared revenues:

 Mandatory, Authorizing Committee

 Budget Authority 2001-01 42 49 28

 Outlays 2001-02 44 45 34

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 1 1 1

 Other services from non-Federal sources 25.2 1 1 1

 Grants, subsidies, and contributions 41.0 42 47 26

 Total new obligations 99.9 44 49 28
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Page XII - 16 Chapter XII – Miscellaneous Permanent Payments

Budget Schedules – Current Law

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts

Line 2013 Act 2014 CY 2015 BY

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 13 13 13

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-9921] 1000 0
Bureau of Land Management 2015 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII - 17

Budget Schedules - Proposal

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line 2013 Act 2014 CY 2015 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Payments to O&C counties under 1937 statute 0014 0 0 -12

 Payments to CBWR counties under 1939 statute 0015 0 0 -1

Total new obligations 0900 0 0 -13

Budgetary Resources:

 Budget authority:

 Appropriations, mandatory:

 Payments to O&C Grants lands counties under 

1937 statute 1201 0 0 -12

 Payments to CBWR counties under 1939 statute 1201 0 0 -1

 Appropriations, mandatory (total) 1260 0 0 -13

 Appropriations, mandatory - Computed Totals 1260-20 0 0 -13

 Mandatory, Authorizing Committee

 Appropriation [Text] 1260-40 0 0 -13

 Effects of 2014 sequester 1260-40 0 0 0

Total budgetary resources available 1930 0 0 -13

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 0

 Obligations incurred, unexpired accounts 3010 0 0 -13

 Outlays (gross) 3020 0 0 13

 Unpaid obligations, end of year 3050 0 0 0

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 0

 Obligated balance, end of year 3200 0 0 0

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 -13

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 -13

 Budget authority, net (mandatory) 4160 0 0 -13

 Outlays, net (mandatory) 4170 0 0 -13

Budget authority, net (total) 4180 0 0 -13

Outlays, net (total) 4190 0 0 -13
2015 Budget Justifications Bureau of Land Management

Page XII - 18 Chapter XII – Miscellaneous Permanent Payments

Budget Schedules - Proposal

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line 2013 Act 2014 CY 2015 BY

 Grants to State and local governments:

 Other than shared revenues:

 Mandatory, Authorizing Committee

 Budget Authority 2001-01 0 0 -13

 Outlays 2001-02 0 0 -13

Object Classification (O) ($ in Millions)

Direct obligations:

 Grants, subsidies, and contributions 41.0 0 0 -13

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 0 0 0
Permanent Operating 

Funds 

 

Bureau of Land Management 2015 Budget Justifications

Chapter XIII –Permanent Operating Funds Page XIII - 1

Permanent Operating Funds

Appropriation Language

No Appropriation Language Sheet

Explanation

The Permanent Operating Funds Appropriation contains funds available for use by the BLM for 

the purposes specified in permanent laws and do not require annual appropriation action. The 

activities authorized by the appropriations are funded through various receipts received from the 

sale, lease or use of the public lands and resources. Amounts shown for 2014 and 2015 are 

estimates based on anticipated collections. 

Authorizations

Forest Ecosystem 

Health & Recovery Fund 

(P.L. 102-381)

The initial purpose of this fund was to allow quick response to 

fire and reforestation of forests damaged by insects, disease, 

and fire. Expanded authorization in the 1998 Interior and 

Related Agencies Appropriations Act allows activities 

designed to reduce the risk of catastrophic damage to forests 

in addition to responding to damage events. Funds in this 

account are derived from the Federal share (defined as the 

portion of receipts not paid to the counties under 43 U.S.C. 

1181f and 43 U.S.C. 1181-1 et seq., and P.L. 106-393) of 

receipts from all BLM timber salvage sales and all BLM forest 

health restoration treatments funded by this account. The 

authority to make deposits and to spend from this fund was 

provided in the 2010 Interior Appropriations Act (P.L. 111-88, 

123 STAT. 2906) and expires at the end of fiscal year 2015. 

Omnibus Consolidated 

Appropriations Act of 

1996, section 327

This Act established the Timber Sale Pipeline Restoration 

Fund, using revenues generated by timber sales released 

under Section 2001(k) of the 1995 Supplemental 

Appropriations for Disaster Assistance and Rescissions Act, 

which directs that 75 percent of the Pipeline Fund be used to 

fill each agency’s timber sale “pipeline” and that 25 percent of 

the Pipeline Fund be used to address the maintenance 

backlog for recreation projects on BLM and U.S. Forest 

Service lands after statutory payments are made to State and 

local governments and the U.S. Treasury. 
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Page XII - 2 Chapter XIII –Permanent Operating Funds

1985 Interior and 

Related Agencies, 

Appropriations Act (P.L. 

98-473), Section 320

Established a permanent account in each bureau for the 

operation and maintenance of quarters, starting with 1985 and 

each fiscal year thereafter.

75th Congress, 1st 

Session – Ch. 876 –

August 28, 1937, 50 

Stat. 874

An Act relating to the revested Oregon and California Railroad 

and reconveyed Coos Bay Wagon Road grant lands situated 

in the State of Oregon provides that eighteen counties in 

western Oregon be paid fifty percent of the revenues from 

Oregon and California grant lands. 

76th Congress, 1st 

Session – Ch. 142-144 –

May 24, 1939, 53 Stat. 

753

An Act relating to the disposition of funds derived from the 

Coos Bay Wagon Road grant lands provides that Coos and 

Douglas counties in western Oregon be paid for lost tax 

revenue. 

The Omnibus Budget 

Reconciliation Act of 

1993

Amended the Land and Water Conservation Fund Act and 

further expanded collection of recreation use fees to be 

deposited into a special account established for each agency 

in the U.S. Treasury to offset the cost of collecting fees. 

The 1993 Interior and 

Related Agencies 

Appropriations Act

The Federal share of receipts from the disposal of salvage 

timber from lands under BLM jurisdiction is deposited in a 

special fund in the U.S. Treasury.

Section 502(c) of the 

Federal Land Policy and 

Management Act of 

1976 (43 U.S.C. 1762(c))

Provides for the permanent appropriation of money collected 

from commercial road users in lieu of user maintenance. 

Receipts are permanently appropriated to the BLM for road 

maintenance.

Act of October 30, 1998

(P.L. 105-321)

The legislation provides that the BLM will convey property to 

Deschutes County, Oregon, and the amount paid by the 

County pursuant to the Act, may be used by the Secretary of 

the Interior to purchase environmentally sensitive land east of 

Range 9 East of Willamette Meridian, Oregon.

Lincoln County 

Conservation, 

Recreation and 

Development Act 

(PL 108-424)

Addresses a wide range of public lands issues in Lincoln 

County, Nevada, designates as wilderness 768,294 acres of 

BLM-managed lands and releases from Wilderness Study 

Area (WSA) status 251,965 acres of public land. The Act also 

directs the BLM to dispose of up to 90,000 acres of public 

land and divides the proceeds 85 percent to a Federal fund 

and 15 percent to State and County entities, establishes utility 

corridors, transfers public lands for State and County parks, 

creates a 260-mile off-highway vehicle trail and resolves other 

public lands issues.
Bureau of Land Management 2015 Budget Justifications

Chapter XIII –Permanent Operating Funds Page XIII - 3

Lincoln County Land 

Sales (P.L. 106-298) 

The Lincoln County Land Act of 2000, among other things, 

authorizes the Secretary to dispose of certain lands in Lincoln 

County, Nevada, to distribute the proceeds as follows: Five

percent to the State of Nevada, 10 percent the County, and 

85 percent to an interest bearing account that is available for 

expenditure without further appropriation.

White River Oil Shale 

Mine, Utah Property 

Sale Provisions, The 

2001 Interior and 

Related Agencies 

Appropriations Act (P.L. 

106-291)

The Act authorized the sale of improvements and equipment 

at the White River Oil Shale Mine with the proceeds to be 

available for expenditure without further appropriation to

reimburse (A) the Administrator for the direct costs of the sale; 

and (B) the Bureau of Land Management Utah State Office for 

the costs of closing and rehabilitating the mine. 

The Federal Land 

Transaction Facilitation 

Act (P.L. 106-248)

The Federal Land Transaction Facilitation Act (FLTFA) 

provides that the BLM may conduct sales of lands that have 

been classified as suitable for disposal under current resource 

management plans. This law provides that receipts from such 

sales may be used to acquire non-Federal lands with 

significant resource values that fall within the boundaries of 

areas now managed by the Department. FLTFA expired on 

July 25, 2010. It was reauthorized through July 25, 2011 by 

the 2010 Supplemental Appropriations Act (P.L. 111-212). 

The 2015 Budget includes a proposal to reauthorize FLTFA 

and allow lands identified as suitable for disposal in recent 

land use plans to be sold using the FLTFA authority. FLTFA 

sales revenues would continue to be used to fund the 

acquisition of environmentally sensitive lands and the 

administrative costs associated with conducting sales.

Southern Nevada Public 

Land Management Act 

(P.L. 105-263). 

Provides for the orderly disposal of certain Federal lands in 

Clark County, Nevada, and to provide for the acquisition of 

environmentally sensitive lands in the State of Nevada. 

Receipts are generated primarily through the sale of public 

lands in the Las Vegas Valley. 

Federal Lands 

Recreation 

Enhancement Act (Title 

VIII of P.L. 108-447)

Enacted as Title VIII of the Consolidated Appropriations Act, 

2005, this Act provides authority for 10 years for the BLM to 

manage public lands for recreational purposes and to collect 

and spend recreation use fees. The purposes for which the 

collections may be spent are generally for maintenance and 

repair of recreation facilities, visitor services, and habitat 

restoration related to recreation, law enforcement related to 

public use and recreation, and direct operating and capital 

costs of the recreation fee program. The 2015 budget 

proposes legislation to permanently authorize the Federal 

Lands Recreation Enhancement Act, which will expire in 

December 2015. In addition, the Department will propose a 
2015 Budget Justifications Bureau of Land Management

Page XII - 4 Chapter XIII –Permanent Operating Funds

general provision in the 2015 budget request to amend 

appropriations language to extend the authority through FY 

2016.

Energy Policy Act of 

2005 (P.L. 109-58, 

Sections 224 and 234, 

Section 365, Section 

332, and Section 349)

Established three multi-year appropriations to use a portion of 

onshore mineral leasing receipts to improve oil and gas permit 

processing, facilitate the implementation of the Geothermal 

Steam Act, and clean up environmental contamination on the 

Naval Petroleum Reserve Numbered 2 in California. It also 

authorized the Secretary of the Interior to establish standards 

under which leaseholders may reduce payments owed by the 

reasonable actual costs of remediating, reclaiming, and 

closing orphaned wells. 

Public Law 109-432, 

White Pine County Land 

Sales

Authorizes the disposal through sale of 45,000 acres in White 

Pine County, Nevada, the proceeds of which are distributed 

as follows: (a) Five percent for use in the general education 

program of the State of Nevada; (b) 10 percent shall be paid 

to the County for use for fire protection, law enforcement, 

education, public safety, housing, social services, 

transportation, and planning; and (c) the remaining 85 percent 

to be used to the reimburse the Bureau of Land Management 

and the Department of the Interior for certain costs, to 

manage unique archaeological resources, for wilderness and 

endangered species protection, for improving recreational 

opportunities in the County, and for other specified purposes.

Public Law 111-11, 

Omnibus

Public Land 

Management Act of 

2009

Among numerous other things, authorizes the disposal of 

certain lands in the Boise District of the Bureau of Land 

Management, in Washington County, Utah, and in Carson 

City, Nevada. It authorizes the BLM to retain and spend most 

of the proceeds of sales of those lands to acquire lands in 

wilderness and other areas and for other purposes, and to 

pay a portion to the States in which the sold land was located. 

Sec. 347 of Public Law 

105-277, as amended by 

Public Law 108-7 and 

Public Law 113-79

Permanently authorizes the Bureau of Land Management, via 

agreement or contract as appropriate, to enter into 

stewardship contracting projects with private persons or other 

public or private entities to perform services to achieve land 

management goals for the national forests and the public 

lands that meet local and rural community needs. 

Public Law 109-94, 

Ojito Wilderness Act

Authorizes the sale of land to the Pueblo of Zia Tribe, and 

appropriates the proceeds of that sale to the BLM to purchase 

lands within the State of New Mexico. 
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Chapter XIII –Permanent Operating Funds Page XIII - 5

Summary of Requirements

(Dollars in Thousands)

Comparison

by Activity/

Subactivity

2013

Actual

2014

Enacted

2015 Change

From 2014

(+/-)

Program 

Changes

(+/-)

Budget Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Permanent Operating Funds Total 466 57,219 458 87,140 0 +26,883 458 114,023 0 +26,883

Operations & Maintenance of Quarters 0 591 0 557 0 +43 0 600 0 +43

Recreation Enhancement Act, BLM 117 17,491 117 16,704 0 +1,796 117 18,500 0 +1,796

Forest Ecosystem Health & Recovery 58 6,104 58 5,522 0 +88 58 5,610 0 +88

Timber Sale Pipeline Restoration 19 2,890 19 2,209 0 +89 19 2,298 0 +89

Expenses, Road Maintenance Deposits 6 2,745 6 1,856 0 +144 6 2,000 0 +144

Southern Nevada Public Land Sales 49 9,600 49 40,695 0 +15,962 49 56,657 0 +15,962

Southern Nevada Earnings on Investments 5 943 5 0 0 +1,000 5 1,000 0 +1,000

Lincoln County Land Sales 5 514 5 804 0 +2,258 5 3,062 0 +2,258

Interest, Lincoln County Land Sales 0 54 0 0 0 +210 0 210 0 +210

White Pine County Special Account 0 0 0 240 0 -240 0 0 0 -240

Stewardship contract excess receipts 0 46 0 37 0 --17 0 20 0 -17

Federal Land Disposal Account 0 0 0 0 0 +4,800 0 4,800 0 +4,800

Owyhee Land Acquisition Account 0 0 0 0 0 +768 0 768 0 +768

Washington County, Utah Land Acquisition Account 0 0 0 0 0 +96 0 96 0 +96

Silver Saddle Endowment 0 0 0 334 0 -344 0 0 0 -344

Carson City Special Account 0 0 0 176 0 -176 0 0 0 -176

Ojito Land Acquisition 0 0 0 715 0 -715 0 0 0 -715

NPR-2 Lease Revenue Account 5 5 5 27 0 +26 5 53 0 +26

Geothermal Lease and Use Authorization Fund 8 0 0 0 0 0 0 0 0 0

Oil and Gas Permit Processing Improvement Fund 194 16,236 194 17,264 0 +1,085 194 18,349 0 +1,085

* Authority for deposits to this fund has expired. Unobligated balances are being expended. 
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Chapter XIII –Permanent Operating Funds Page XIII - 7

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 2014 and 2015 are estimates based on anticipated collections. 

Projected collection amounts consider such factors as market and economic indicators, 

expected public or industry demand levels for services or sales products, fee or collection 

schedules or structures, and certain legislative proposals expected to be enacted into law.

Operations & Maintenance of Quarters –This account is used to maintain and repair all BLM 

employee-occupied quarters from which quarters rental charges are collected. Agencies are 

required to collect quarter rentals from employees who occupy Government-owned housing and 

quarters. This housing is provided only in isolated areas or when an employee is required to 

live on-site at a Federally-owned facility or reservation. The BLM currently maintains and 

operates 248 housing or housing units in 11 States. 

Recreation Fee Program, BLM – The Federal Lands Recreation Enhancement Act (FLREA) of 

2004, Title VIII of the Consolidated Appropriations Act, 2005, Public Law 108-447, provided a 

comprehensive restatement of Federal authority, including BLM’s, to collect and spend 

recreation use fees. This statute replaced prior authorities enacted in the Land and Water 

Conservation Act, the Omnibus Budget Reconciliation Act of 1993, and the Recreational Fee 

Demonstration Program authority enacted in annual appropriation acts since 1996. During 

fiscal 2005, the BLM switched to the authorities and arrangements enacted in the FLREA. 

Recreation projects operating under the former Recreational Fee Demonstration program have 

varying fee structures depending upon the day of week, season of use, free use days, and 

standardized entrance fees. Service fees, automated fee collection machines, third-party 

collection contracts, volunteer fee collectors, entrance booths, donations, self-serve pay 

stations, reservation systems, fee collection through the mail for permitted areas, special 

recreation permits for competitive and organized groups, and online Internet reservation 

payment with credit cards are examples of new collection methods the BLM has used as a 

result of the Recreational Fee Demonstration program. The fee structure at each site is 

periodically evaluated to ensure that the fees are comparable to similar sites in the surrounding 

area. These fees, combined with appropriated funds, are used to maintain buildings, shelters, 

water supply systems, fences, parking areas, and landscaping; to pump vault toilets and dump 

stations; to replace or repair broken or non-functioning facilities; to modify facilities to 

accessibility standards; and to collect trash at recreation sites.

The Administration proposes to permanently reauthorize the Department of the Interior's and 

the Department of Agriculture's recreation fee programs under the Federal Lands Recreation 

Enhancement Act, which is set to expire on December 8, 2015.

The following table provides the actual collections for 2013 and the estimated revenues 

projected for 2014 and 2015 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.
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Page XIII - 8 Chapter XIII –Permanent Operating Funds

Recreation Fee Projects

(In thousands of dollars)

2013

Actual

2014

Estimated

2015

Budget

Unobligated Balance Brought Forward & Recoveries 13,640 13,805 11,324

Recreation Fee Revenues [Post-sequestration] 17,492 16,704 18,500

America the Beautiful pass [800] [800] [800]

Funds Obligated -17,327 -19,185 -21,630

Unobligated Balance 13,805 11,324 8,194

Total Expenditures (outlays) 16,609 20,014 20,734

Obligations by Type of Project

Asset Repair & Maintenance

Facilities Routine/Annual Maintenance 5,024 5,000 5,500

Facilities Capital Improvements Health & Safety 174 185 200

Facilities Deferred Maintenance 869 1,000 1,500

Subtotal, Asset Repair and Maintenance 6,067 6,185 7,200

Interp. Visitor Services, issue SRP & RUP 5,198 6,000 6,130

Law Enforcement, Recreation 2,252 2,800 3,000

Habitat Restoration, Resource Protection 693 800 850

Collection Costs 346 400 450

Fee Mgmt. Agreement & Reservation Services 866 1,000 1,500

Pass Administration and Overhead

Administration, Overhead, Indirect Costs < = 15% 1,905 2,000 2,500

 Total Obligations -17,327 -19,185 -21,630

Total Expenditures (outlays) 16,609 20,014 20,734

Use of Fees 

BLM’s Annual Maintenance program maintains assets on recreation sites. In fiscal year 2013, BLM 

maintained 90 percent of buildings and 89 percent of non-building assets in fair condition. In FY 2013, $5 

million of recreation fee revenue was used for annual maintenance and operations at recreation sites. 

Projects that have been completed or started are quite varied in nature, and include the following 

accomplishments:

Repair and Maintenance - Recreation fee revenues have been used for maintaining existing facilities; 

repairing roofs; paving and grading roads and bridges; trail maintenance; repairing equipment and vehicles; 

adding communication systems; repairing gates, fences and flood damage; and repairing, replacing, installing, 

and expanding water systems.

Improving Visitor Services - Recreation fee revenues have been used for retrofitting restrooms and providing 

access to picnic areas for persons with disabilities; repairing existing restrooms or constructing new ones; 

landscaping recreation sites; expanding campgrounds; adding new grills and tables; constructing trails and 

additional tent pads; creating and adding directional signs; repairing, replacing, and constructing boat ramps; 

replacing and constructing boat and fishing docks; developing maps; brochures; exhibits and other outreach 

materials; and designing and creating interpretive displays.

Providing for Fee Collection - Recreation fee revenues have been used for constructing fee collection 

facilities, purchasing and installing lighting for exhibits and kiosks, adding seasonal positions, and expanding 

partnerships.
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Chapter XIII –Permanent Operating Funds Page XIII - 9

Forest Ecosystem Health and Recovery Fund (FEHRF) - Funds in this account are derived 

from the Federal share of receipts (defined as the portion of receipts not paid to the counties 

under 43 U.S.C. 1181f and 43 U.S.C. 1181-1 et seq., and P.L. 106-393, as amended) from all 

BLM timber salvage sales, and from BLM forest health restoration treatments funded by this 

account. Funds from this account are available for planning, preparing, implementing, 

monitoring, and reforestation of salvage timber sales and forest health restoration treatments, 

including those designed to release trees from competing vegetation, control tree densities, and 

treat hazardous fuels. Most of these treatments are implemented through service contracts or 

commercial timber sales. BLM projects may occur on Oregon and California Grant Lands, Coos 

Bay Wagon Road Grant Lands in Oregon, and on the public domain lands throughout the BLM. 

The initial purpose of this fund was to allow quick response to fire and for reforestation of forests 

damaged by insects, disease, and fire. Expanded authorization in the 1998 Interior and Related 

Agencies Appropriations Act allows activities designed to promote forest health, including 

reducing the risk of catastrophic damage to forests in addition to responding to damage events. 

The Federal share of receipts in 2013 was $6.1 million. The expected receipts for 2014 and 

2015 are estimated to be $5.5 million and $5.6 million respectively.

The volume of salvage timber harvested and associated revenues in any given year may vary 

depending upon the severity of wildland fires, weather events such as drought and windstorms, 

and insect and disease mortality. The volume and value of harvest is also influenced by the 

demand for wood products. 

In 2013, the BLM treated 12,120 acres, inventoried 21,728 acres, and offered 71.4 million board 

feet of timber from salvage and forest restoration activities with FEHRF funds. In 2014, the BLM 

intends to treat 9,800 acres, inventory 25,000 acres, and offer 80 million board feet of timber 

from salvage and forest restoration activities with these funds. In 2015, the BLM plans to treat 

12,000 acres, inventory 20,000 acres and offer 70 million board feet of timber from salvage and

forest restoration activities with these funds. Under current law, the fund expires at the end of 

2015. 

Timber Sale Pipeline Restoration Fund – The Pipeline Fund was established under Section 

327 of the Omnibus Consolidated Rescissions and Appropriations Act of 1996. The Act 

established separate funds for the U.S. Forest Service (USFS) and the BLM using revenues 

generated by timber sales released under Section 2001(k) of the 1995 Supplemental 

Appropriations for Disaster Assistance and Rescissions Act. This Act directs that 75 percent of 

the Pipeline Fund be used to fill each agency’s timber sale “pipeline”; and, that 25 percent of the 

Pipeline Fund be used to address the maintenance backlog for recreation projects on BLM and 

USFS lands. Funds are deposited into the fund after statutory payments are made to State and 

local governments. 

Receipts deposited in 2013 were $2.9 million. In 2014 receipts are estimated to be $2.2 million 

and in 2015 $2.3 million. In 2014 and 2015, 100 percent of timber sale pipeline receipts from 

O&C Grant Lands will be deposited to the Timber Sales Pipeline Restoration Fund due to the

proposed reauthorization of Secure Rural Schools payments. That law exempts deposits to 

permanent operating funds such as to the Timber Sales Pipeline Restoration Fund from being 

available for use to make Secure Rural Schools payments to western Oregon counties.

 
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Page XIII - 10 Chapter XIII –Permanent Operating Funds

Deposits and Expenditures,

Timber Sale Pipeline Restoration Fund

($000)

Year Annual Deposit Cumulative Deposit Annual Expenditure Cumulative 

Expenditure

1998 31,803 31,803 4,474 4,474

1999 3,122 38,192 10,239 14,713

2000 0 38,192 8,454 23,167

2001 6,590 41,868 7,489 30,656

2002 563 42,431 5,615 36,271

2003 2,879 45,502 5,339 41,610

2004 6,993 53,421 2,904 44,514

2005 8,843 62,301 2,887 47,401

2006 12,339 74,756 5,059 52,460

2007 10,922 85,718 8,381 60,841

2008 10,396 96,093 10,340 71,181

2009 5,162 101,274 16,768 87,949

2010 4,078 105,352 10,587 98,536

2011 4,048 109,400 4,718 103,254

2012 4,023 113,423 4,514 107,768

2013 2,889 116,313 2,106 109,874

2014 Est. 2,380 118,693 2,000 111,874

2015 Est. 2,298 120,991 2,000 113,874

At the end of 2013, the unobligated balance in the Fund was $8.6 million. The BLM plans 

estimates the Fund balance will be $9.2 million at the end of fiscal year 2015.

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 2013, the BLM completed $25.8 million in deferred 

maintenance work at 43 recreation sites. The principal focus of recreation spending is 

maintaining existing facilities, resolving critical safety needs, and meeting the requirements of 

the Americans with Disabilities Act. The BLM has made considerable investment in projects 

such as renovation of water and sewer systems, upgrading restroom facilities, improving 

parking areas, and adapting existing recreation sites for handicapped visitors. In 2015, the BLM 

level of expenditures for recreation projects is estimated to be $900,000.

Timber Sales Prepared by Use of the Pipeline Fund – Approximately 75 percent of the Timber 

Sale Pipeline Fund is specifically used by a multiple resource team of specialist to prepare 

timber sales, including all necessary NEPA, environmental inventories and analyses; timber 

sale layout; timber cruising and appraising; and contract preparation costs. Upon completion of 

these requirements, a timber sale is officially prepared and placed “on-the-shelf” in anticipation 

of being offered for sale in future years. 

Since 2001, the BLM has harvested approximately 552 million board feet of timber valued at 

approximately $75.6 million dollars from the Pipeline Fund timber sales. In 2013, the BLM 
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Chapter XIII –Permanent Operating Funds Page XIII - 11

expended an estimated $2.1 million from the Timber Sale Pipeline Fund and offered 

approximately 40.8 million board feet of timber for sale valued at approximately $8.9 million. 

The BLM expects to deposit $2.4 million and $2.3 million from associated timber sales into the 

Pipeline Fund in 2014 and 2015.

Expenses, Road Maintenance Deposits – This activity provides for the permanent 

appropriation of money collected from commercial road users in lieu of user maintenance. The 

receipts are permanently appropriated to the BLM for road maintenance. Users of certain roads 

under BLM jurisdiction make deposits for maintenance purposes. Moneys collected are 

available for needed road maintenance. Moneys collected on Oregon and California Grant 

Lands are available only for those lands (43 U.S.C. 1762(c), 43 U.S.C. 1735(b)). The BLM has 

authority to collect money for road maintenance from commercial users of the public lands and 

the public domain lands transportation system. Most of the funds generated for this account 

come from Oregon and California Grant Lands and are available for those lands only, excluding 

$225,000 that is made available for administrative expenses.

Southern Nevada Public Land Sales – This receipt account allows the BLM to record 

transactions authorized by the Southern Nevada Public Land Management Act (SNPLMA) (P.L. 

105-263). The purpose of the Act is to provide for the orderly disposal of certain Federal lands in 

Clark County, Nevada, to meet the demands for community expansion and economic 

development, and to use the proceeds from these sales to address critical environmental and 

educational needs in Clark County and other areas of Nevada. Receipts are generated primarily 

through sale to the public of lands in the Las Vegas valley. Approximately 50,000 acres of public 

land are within the disposal boundary area.

Currently, funds collected from the land sales are distributed as follows:

 Five percent to the State General Education Fund.

 Ten percent to the Southern Nevada Water Authority to fund the infrastructure needed to 

support the development resulting from land sales under the Act.

 Eighty-five percent is deposited into a special account and available to be spent by the 

Secretary of the Interior.

To date, SNPLMA has generated more than $2.9 billion in deposits to the special fund, including 

earnings on investments, from land sales since its enactment in 1998. When SNPLMA was 

originally passed, proceeds from land sales under the bill were estimated at roughly $70 million 

per year. 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 2014 and 2015.

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 is 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. 
2015 Budget Justifications Bureau of Land Management

Page XIII - 12 Chapter XIII –Permanent Operating Funds

The purpose of the Act is to provide for the disposal of certain Federal lands in Lincoln County, 

Nevada. Funds accumulated in the special account may be used to:

• Preserve archaeological resources, conserve habitat, and reimburse the BLM Nevada State 

Office for land sale costs related to this act; and

• Process public land use authorizations and rights-of-way stemming from conveyed land;

• Purchase environmentally sensitive land or interests in land in the State of Nevada, with 

priority given to land outside Clark County.

In 2013, $514,000 was deposited from land sales. In 2014 and 2015, deposits from land sales 

are estimated to be $804,000 and $3,062,000. Those estimates exclude interest deposited to 

the fund and payments to the State and County. 

Earnings on Investments, Lincoln County Land Act – This account allows the BLM to record 

interest-earning activity on funds held by the U.S. Treasury derived from Lincoln County land 

sales. In 2013, $54,000 was deposited from interest earned on the Lincoln County fund 

balance. Less than $1,000 of interest is estimated for 2014, but $210,000 is estimated to be 

deposited in 2015. Lincoln County Land Sales Act (P.L. 106-298), both directs the sale of 

specified public lands and authorizes the accumulation of interest earnings. Eighty-five percent 

of gross land sales receipts are deposited in a Treasury special account. Funds in the special 

account earn interest at a rate determined by the Secretary of the Treasury and are available for 

expenditure without further appropriation under the provisions of the Act. 

Stewardship "End Results" Contracting Fund –The 2003 Omnibus Appropriations Act (P.L. 

108-7), Section 323, amended Section 347 of the 1999 Appropriation Omnibus (P.L. 105-277, 

Oct. 21, 1998) that originally granted the USFS pilot stewardship contracting authority. Until 

September 30, 2013, the USFS and the BLM, via agreement or contract as appropriate, may 

enter into stewardship contracting projects with private persons or other public or private entities 

to perform services to achieve land management goals for the national forest and the public 

lands that meet local and rural community needs.

The Act granted the BLM the ability to utilize stewardship contracting as a tool for forest and 

rangeland restoration. The BLM may apply the value of timber or other forest products removed 

as an offset against the cost of services received, and monies from a contract under subsection 

(a) may be retained by the USFS and the BLM and shall be available for expenditure without 

further appropriation at the project site from which the monies are collected or at another project 

site. In 2013, the BLM deposited $46,000 into the fund and expects to deposit $37,000 and 

$20,000 in 2014 and 2015 respectively. 

The Agriculture Act of 2014 (P.L. 113-79) provides permanent stewardship contracting authority.

Federal Land Disposal Account – The Federal Land Transaction Facilitation Act (FLTFA), 

provides authority for the use of receipts from disposal actions by the BLM to purchase 

inholdings and lands adjacent to federally designated areas containing exceptional resources, 

as defined in FLTFA, from willing sellers with acceptable titles, at fair market value, to “promote 

consolidation of the ownership of public and private lands in a manner that would allow for 

better overall resource management administrative efficiency, or resource allocation.

The Act expired on July 25, 2010. On July 29, 2010, Congress passed PL 111-212, which 

included a one-year extension of FLTFA. Because of the break in FLTFA’s authority, the funds 

in the account on July 25, 2010 were deposited into the Land and Water Conservation Fund. 
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Chapter XIII –Permanent Operating Funds Page XIII - 13

This included $37 million designated for land purchase and $13 million designated to administer 

the BLM’s land sale program, for a total of approximately $50 million. When the one-year

extension expired, the unobligated balance of $2.2 million was transferred to the Land and 

Water Conservation Fund. 

The Budget includes a proposal to reauthorize FLTFA and allow lands identified as suitable for 

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

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

administrative costs associated with conducting sales. 

Owyhee Land Acquisition Account – The Owyhee Land Acquisition Account was established

under Section 1505 of the Omnibus Public Land Management Act of 2009. This account 

provides a process for orderly sale of certain public lands in Boise District of the BLM that, as of 

July 25, 2000, had been identified for disposal in an appropriate resource management plan. 

Washington County, Utah Land Acquisition Account – This account was established under

Section 1778 of the Omnibus Public Land Management Act of 2009. This account provides a 

process for the orderly sale of certain public lands in Washington County, Utah, that, as of July 

25, 2000, had been identified for disposal in appropriate resource management plans. 

Proceeds from the sale of public land are deposited into the “Washington County, Utah Land 

Acquisitions Account.” Amounts in the account are available to the Secretary to purchase, from 

willing sellers, inholdings of lands or interest in land within the wilderness areas and National 

Conservation Area established by the Omnibus Public Land Management Act. 

Silver Saddle Endowment Account – This account was established by the Omnibus Public 

Land Management Act of 2009, and authorizes under certain conditions the sale of a 62-acre 

parcel to Carson City, Nevada. Proceeds of the sale are to be used by BLM for the oversight 

and enforcement of a perpetual conservation easement to the land to protect, preserve, and 

enhance the conservation values of the land. No deposits were made in 2013; $344,000 is 

estimated in 2014; and none is estimated in 2015. 

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, 2012 and 

2013 there were no receipts. In 2014, estimated deposits are $176,000; none are estimated for 

2015. 

NPR-2 Lease Revenue Account – Section 331 of the Energy Policy Act of 2005, P.L.109–58

transferred Naval Petroleum Reserve Numbered 2 from the Department of Energy to the 

Department of the Interior and appropriates a portion of revenues from mineral leases on the 

site to remove environmental contamination. The appropriations end when the cleanup is 

completed. 

Geothermal Steam Act Implementation Fund – Section 224 of the Energy Policy Act of 2005,

P.L.109–58, amended the Geothermal Steam Act of 1970. The amendment provides that fifty 

percent of geothermal bonuses, rents, and royalties will be paid to the State and twenty-five 

percent will be paid to the County within the boundaries of which the leased lands or geothermal 

resources are or were located. Section 234 provided that twenty-five percent be deposited to 
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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.21 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. For more information on the use of this Fund, 

please see the Oil and Gas Management section in the Management of Lands and Resources 

Chapter. 

Ojito Land Acquisition – The Ojito Wilderness Act authorized the sale of land to the Pueblo of 

Zia Indian Tribe and the purchase of land from willing sellers within the State of New Mexico. 

The sale to the tribe has been completed, and the BLM is planning a purchase of land using the 

proceeds of that sale. 

 

21 Section 423, P.L. 111-88, (123 STAT. 2961). Department of the Interior, environment, and related agencies appropriations for the fiscal year 

ending September 30, 2010
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Chapter XIII –Permanent Operating Funds Page XIII - 15

Budget Schedules – Current Law

Account Symbol and Title

14X9926

Permanent Operating Funds Line 2013 Act 2014 CY 2015 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Forest ecosystem health and recovery fund 0001 6 6 6

 Recreation fee demonstration 0002 17 18 19

 Expenses, road maintenance deposits 0003 2 2 2

 Timber sale pipeline restoration fund 0004 2 4 4

 Southern Nevada public land sales (85) 0005 159 158 160

 Lincoln County Lands Act 0008 2 3 3

 Operation and maintenance of quarters 0013 1 1 1

 Permit Processing Improvement Fund 0014 21 20 24

 Geothermal Steam Act Fund 0015 1 1 0

 NPR-2 Cleanup Fund 0018 1 1 1

 Ojito Land Acquisition 0021 0 1 0

Total new obligations 0900 212 215 220

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 626 561 434

 Recoveries of prior year unpaid obligations 1021 90 0 0

 Unobligated balance (total) 1050 716 561 434

 Budget authority:

 Appropriations, mandatory:

 Recreation fee demonstration program 1201 18 18 19

 Forest ecosystem health and recovery fund 1201 6 6 3

 Timber sales pipeline restoration fund 1201 3 2 1

 Expenses, road maintenance deposits 1201 3 2 2

 S. Nevada public land management 1201 11 44 57

 S. Nevada public land management-interest earned 1201 1 0 1

 Permit processing improvement fund 1201 17 19 18

 Operation and maintenance of quarters 1201 1 1 1

 Owyhee Land Acquisition 1201 0 0 1

 Lincoln Cty. land sales 1201 0 1 3

 Appropriation (Ojito Land Acquistion) 1201 0 1 0

 Appropriation (previously unavailable) 1203 0 1 0

 Appropriations and/or unobligated balance of 

appropriations temporarily reduced 1232 -3 -7 0

 Appropriations, mandatory (total) 1260 57 88 106

 Appropriations, mandatory - Computed Totals 1260-20 57 88 106

 Mandatory, Authorizing Committee

 Appropriation [SNPLMA] 1260-40 11 44 58

 Baseline Civilian Pay 1260-50 4 4
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Budget Schedules – Current Law

Account Symbol and Title

14X9926

Permanent Operating Funds Line 2013 Act 2014 CY 2015 BY

 Baseline Non-Pay 1260-50 40 54

 Appropriation [Recreation Fees] 1260-40 17 18 19

 Baseline Civilian Pay 1260-50 9 9

 Baseline Non-Pay 1260-50 9 10

 Appropriation [Other Perm Operating] 1260-40 32 25 29

 Baseline Civilian Pay 1260-50 14 14

 Baseline Non-Pay 1260-50 11 15

 Appropriation [Sequestration] 1260-40 -3 1 0

 Baseline Civilian Pay 1260-50 1 0

 Effects of 2014 sequester 1260-40 0 0 0

 Baseline Non-Pay 1260-50 0 0

Total budgetary resources available 1930 773 649 540

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 561 434 320

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 492 332 314

 Obligations incurred, unexpired accounts 3010 212 215 220

 Outlays (gross) 3020 -282 -233 -245

 Recoveries of prior year unpaid obligations, 

unexpired 3040 -90 0 0

 Unpaid obligations, end of year 3050 332 314 289

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 492 332 314

 Obligated balance, end of year 3200 332 314 289

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 57 88 106

 Outlays, gross:

 Outlays from new mandatory authority 4100 20 43 51

 Outlays from mandatory balances 4101 262 190 194

 Outlays, gross (total) 4110 282 233 245

 Budget authority, net (mandatory) 4160 57 88 106

 Outlays, net (mandatory) 4170 282 233 245

Budget authority, net (total) 4180 57 88 106

Outlays, net (total) 4190 282 233 245

Memorandum (non-add) entries:

 Total investments, SOY: Federal securities: Par value 5000 881 693 670

 Total investments, EOY: Federal securities: Par value 5001 693 670 530
Bureau of Land Management 2015 Budget Justifications

Chapter XIII –Permanent Operating Funds Page XIII - 17

Budget Schedules – Current Law

Account Symbol and Title

14X9926

Permanent Operating Funds Line 2013 Act 2014 CY 2015 BY

 Direct Federal programs:

 Budget Authority 2004-01 57 88 106

 Outlays 2004-02 282 233 245

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 24 25 26

 Other than full-time permanent 11.3 3 3 3

 Other personnel compensation 11.5 1 1 1

 Total personnel compensation 11.9 28 29 30

 Civilian personnel benefits 12.1 9 9 9

 Travel and transportation of persons 21.0 0 1 1

 Transportation of things 22.0 1 1 1

 Communications, utilities, and miscellaneous charges 23.3 1 1 1

 Advisory and assistance services 25.1 1 1 2

 Other services from non-Federal sources 25.2 8 12 21

 Other goods and services from Federal sources 25.3 48 41 52

 Operation and maintenance of facilities 25.4 1 1 1

 Operation and maintenance of equipment 25.7 1 2 2

 Supplies and materials 26.0 2 3 4

 Equipment 31.0 1 1 1

 Land and structures 32.0 2 4 4

 Grants, subsidies, and contributions 41.0 7 10 13

Subtotal, obligations 99.0 110 116 142

Allocation Account - direct:

 Personnel compensation:

 Full-time permanent 11.1 7 1 1

 Civilian personnel benefits 12.1 2 0 0

 Travel and transportation of persons 21.0 0 2 1

 Transportation of things 22.0 0 2 1

 Advisory and assistance services 25.1 0 1 1

 Other services from non-Federal sources 25.2 0 32 12

 Other goods and services from Federal sources 25.3 79 22 22

 Operation and maintenance of equipment 25.7 0 2 2

 Supplies and materials 26.0 0 1 1

 Equipment 31.0 0 1 1

 Land and structures 32.0 11 10 10

 Grants, subsidies, and contributions 41.0 3 25 26

Subtotal, obligations 99.0 102 99 78

 Total new obligations 99.9 212 215 220

Employment Summary (Q)
2015 Budget Justifications Bureau of Land Management

Page XIII - 18 Chapter XIII –Permanent Operating Funds

Budget Schedules – Current Law

Account Symbol and Title

14X9926

Permanent Operating Funds Line 2013 Act 2014 CY 2015 BY

Direct civilian full-time equivalent employment 1001 466 458 428

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-9926] 1000 0
Bureau of Land Management 2015 Budget Justifications

Chapter XIII –Permanent Operating Funds Page XIII - 19

Budget Schedules - Proposal

Account Symbol and Title

14X9926

Permanent Operating Funds Line 2013 Act 2014 CY 2015 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Federal Lands Disposal Fund [FLTFA] 0009 0 0 2

Total new obligations 0900 0 0 2

Budgetary Resources:

 Budget authority:

 Appropriations, mandatory:

 Federal Land Disposal Account 1201 0 0 5

 Appropriations, mandatory (total) 1260 0 0 5

 Appropriations, mandatory - Computed Totals 1260-20 0 0 5

 Mandatory, Authorizing Committee

 Appropriation [FLTFA] 1260-40 0 0 5

Total budgetary resources available 1930 0 0 5

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 0 0 3

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 0

 Obligations incurred, unexpired accounts 3010 0 0 2

 Outlays (gross) 3020 0 0 -1

 Unpaid obligations, end of year 3050 0 0 1

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 0

 Obligated balance, end of year 3200 0 0 1

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 5

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 1

 Budget authority, net (mandatory) 4160 0 0 5

 Outlays, net (mandatory) 4170 0 0 1

Budget authority, net (total) 4180 0 0 5

Outlays, net (total) 4190 0 0 1
2015 Budget Justifications Bureau of Land Management

Page XIII - 20 Chapter XIII –Permanent Operating Funds

Budget Schedules - Proposal

Account Symbol and Title

14X9926

Permanent Operating Funds Line 2013 Act 2014 CY 2015 BY

 Direct Federal programs:

 Budget Authority 2004-01 0 0 5

 Outlays 2004-02 0 0 1

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 0 0 2

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 0 0 30
Miscellaneous Trust 

Funds 

 

Bureau of Land Management 2015 Budget Justifications

Chapter XIV –Miscellaneous Trust Funds Page XIV - 1

MISCELLANEOUS TRUST FUNDS

Appropriations Language

In addition to amounts authorized to be expended under existing laws, there is hereby 

appropriated such amounts as may be contributed under section 307 of Public Law 94-579 (43 

U.S.C. 1737), and such amounts as may be advanced for administrative costs, surveys, 

appraisals, and costs of making conveyances of omitted lands under section 211(b) of that Act

(43 U.S.C. 1721(b)), to remain available until expended. (Department of the Interior, 

Environment, and Related Agencies Appropriations Act, 2014.)

Explanation

This appropriation authorizes the BLM to expend funds that are contributed to the BLM. The 

contributions cover various operating expenses. The appropriation consists of both current and 

permanent appropriations. The current appropriations are the contributions authorized by the 

Federal Land Policy Management Act (FLPMA) section 307 (c), which allows parties to 

contribute funds to the BLM for resource development, protection, and management activities; 

for acquisition and conveyance of public lands; and for cadastral surveys on Federally controlled 

or intermingled lands. The permanent appropriation allows the BLM to spend funds contributed 

under the authority of the Taylor Grazing Act and under authority of various land survey acts.
2015 Budget Justifications Bureau of Land Management

Page XIV - 2 Chapter XIII –Miscellaneous Trust Funds

AUTHORIZATIONS

Statutes that authorize permanent mandatory trust funds:

The Taylor Grazing Act of 

1934, as amended (43 

U.S.C. 315h, 315i)

Provides for the Secretary of the Interior to accept contributions 

for the administration, protection, and improvement of grazing 

lands, and for these funds to be deposited into the Treasury in a 

trust fund; the Act also permanently appropriates them for use 

by the Secretary.

The Act of March 3, 1891, 

Section 11 (43 U.S.C. 

355)

Provides for the sale of town lots to non-Native Alaskans. This 

Act was repealed by FLPMA in 1976. However, the Comptroller 

General Opinion of November 18, 1935, and 31 U.S.C. 1321

authorize the use of trust funds to provide for survey and deed 

recordation of town lots occupied prior to passage of FLPMA.

43 U.S.C. 759 Provides for accomplishment of public surveys of whole 

townships through a trust fund; deposits for expenses deemed 

appropriated. 43 U.S.C. 761 provides for refunds from trust 

funds established in 43 U.S.C. 759 of costs in excess of 

expenses.

31 U.S.C. 1321(a)(47) and 

(48)

Classifies the activities of "Expenses, public survey work, 

general" and "Expenses, public survey work, Alaska" as trust 

funds.

48 Stat. 1224-36 Provides for payments in advance for public surveys.

Statutes that authorize current mandatory appropriations of trust funds. 

43 U.S.C. 1721(a) and (b) 

(FLPMA Section 211(a) 

and (b))

Provides for the donation of funds for surveys of omitted lands.

The Comptroller General 

Opinion of November 18, 

1935, and 31 U.S.C. 1321

Authorizes the use of trust funds to provide for survey and deed 

recordation of town lots occupied prior to passage of FLPMA.

The Sikes Act of 1974, as 

amended (16 U.S.C. 670 

et seq.)

Provides for the conservation, restoration, and management of 

species and their habitats in cooperation with State wildlife 

agencies. 

Omnibus Appropriations 

Act, 2009, Division E—

Department of the 

Interior, Environment, 

and Related Agencies 

Appropriations Act, 2009, 

P.L. 111-8, March 10, 2009

Provides that projects to be funded pursuant to a written 

commitment by a State government to provide an identified 

amount of money in support of the project may be carried out 

by the Bureau on a reimbursable basis.
Bureau of Land Management 2015 Budget Justifications

Chapter XIV –Miscellaneous Trust Funds Page XIV - 3

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

Comparison

by Activity/

Subactivity

2013

Actual

2014 

Enacted

2015 Change

from 2014

Enacted

(+/ -)

Program 

Changes

(+/ -)

Budget

Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Miscellaneous 

Trust Funds 101 21,779 108 20,694 0 0 108 22,300 0 0

CURRENT: 89 19,085 96 19,024 0 0 96 20,500 0 0

Conveyance of 

Omitted Lands 0 0 0 0 0 0 0 0 0 0

Resource 

Development 

Protection & 

Management -

FLPMA

53 13,889 60 13,844 0 0 60 14,919 0 0

Resource 

Development 

Protection & 

Management -

California OffHighway

35 4,861 35 4,846 0 0 35 5,222 0 0

Wildlife & Fish 

Conservation & 

Rehabilitation -

Sikes Act

1 330 1 329 0 0 1 354 0 0

Rights-Of-Way 0 5 0 5 0 0 0 5 0 0

PERMANENT: 12 2,694 12 1,670 0 0 12 1,800 0 0

Resource 

Development 

Protection & 

Management -

Taylor Grazing 

Act

3 1,707 3 1,059 0 0 3 1,141 0 0

Public Survey 9 987 9 611 0 0 9 659 0 0
2015 Budget Justifications Bureau of Land Management

Page XIV - 4 Chapter XIII –Miscellaneous Trust Funds

Activity Description

The Land and Resource Management Trust Fund provides for resource development, 

protection, and management improvement of the public lands using money and services that 

are contributed to the BLM from non-Federal sources.

Contributions and donations of money from private individuals, companies, user organizations, 

State government agencies, and other non-Federal entities provide for the performance of 

certain conservation practices. Any money remaining after the project is completed is returned 

to the contributor if they desire.

Current Appropriations – Funds are routinely received for the following purposes: 

 Conveyance of Omitted Lands - This activity accounts for contributed funds for land 

and realty actions from non-Federal sources or applicants as agreed to through an 

established contribution agreement. 

 Resource Development, Protection, and Management--FLMPA - According to 

FLPMA, the BLM can accept contributed money or services for resource development, 

protection, and management; conveyance or acquisition of public lands; and conducting 

cadastral surveys. 

 Resource Development, Protection and Management of California Off-Highway 

Vehicles - Includes contributions from the State of California Off-Highway Vehicle 

license (“Green Sticker”) fund. The BLM uses this fund for the development, 

maintenance, and operation of benefiting projects on BLM-administered public lands in 

California. The BLM requests these funds from the State of California each year through 

a competitive process. The amount awarded to the BLM varies each year. 

 Wildlife & Fish Conservation & Rehabilitation--Sikes Act - The Sikes Act authorizes 

State game and fish departments to charge fees for activities such as hunting, fishing, 

and trapping on Federal lands. These funds are shared with the BLM and used by the 

BLM for the conservation, restoration, management and improvement of wildlife species 

and their habitat. 

 Rights-of-Way - This activity accounts for funds contributed by private entities to pay 

the casework costs of processing ROW grants requested by them. 

Permanent Appropriations – The following funds are permanently available as Permanent 

Miscellaneous Trust Funds to the Secretary of the Interior for efforts as specified by the 

authorizing Act: 

 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.
Bureau of Land Management 2015 Budget Justifications

Chapter XIV –Miscellaneous Trust Funds Page XIV - 5

 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. 
2015 Budget Justifications Bureau of Land Management

Page XIV - 6 Chapter XIII –Miscellaneous Trust Funds

Budget Schedules – Current Law

Account Symbol and Title

14X9971

Miscellaneous Trust Funds Line 2013 Act 2014 CY 2015 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Resource development FLPMA 0001 15 15 15

 Resource development CA OHV 0002 6 6 6

 Resource development Taylor Grazing 0003 2 2 2

 Public survey 0004 1 1 1

 Sikes Act 0005 0 1 1

Total new obligations 0900 24 25 25

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 48 47 42

 Recoveries of prior year unpaid obligations 1021 1 0 0

 Unobligated balance (total) 1050 49 47 42

 Budget authority:

 Appropriations, mandatory:

 Appropriation (special or trust fund) 1201 23 22 22

 Appropriations and/or unobligated balance of 

appropriations temporarily reduced 1232 -1 -2 0

 Appropriations, mandatory (total) 1260 22 20 22

 Appropriations, mandatory - Computed Totals 1260-20 22 20 22

 Mandatory, Authorizing Committee

 Appropriation [Text] 1260-40 22 22 22

 Baseline Civilian Pay 1260-50 13 13

 Baseline Non-Pay 1260-50 9 9

 Effects of 2014 sequester 1260-40 0 -2 0

 Baseline Non-Pay 1260-50 -2 0

Total budgetary resources available 1930 71 67 64

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 47 42 39

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 11 10 13

 Obligations incurred, unexpired accounts 3010 24 25 25

 Outlays (gross) 3020 -24 -22 -22

 Recoveries of prior year unpaid obligations, 

unexpired 3040 -1 0 0
Bureau of Land Management 2015 Budget Justifications

Chapter XIV –Miscellaneous Trust Funds Page XIV - 7

Budget Schedules – Current Law

Account Symbol and Title

14X9971

Miscellaneous Trust Funds Line 2013 Act 2014 CY 2015 BY

 Unpaid obligations, end of year 3050 10 13 16

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 11 10 13

 Obligated balance, end of year 3200 10 13 16

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 22 20 22

 Outlays, gross:

 Outlays from new mandatory authority 4100 8 13 15

 Outlays from mandatory balances 4101 16 9 7

 Outlays, gross (total) 4110 24 22 22

 Budget authority, net (mandatory) 4160 22 20 22

 Outlays, net (mandatory) 4170 24 22 22

Budget authority, net (total) 4180 22 20 22

Outlays, net (total) 4190 24 22 22

 Direct Federal programs:

 Budget Authority 2004-01 22 20 22

 Outlays 2004-02 24 22 22

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 5 5 5

 Other than full-time permanent 11.3 1 1 1

 Other personnel compensation 11.5 1 1 1

 Total personnel compensation 11.9 7 7 7

 Civilian personnel benefits 12.1 2 2 2

 Advisory and assistance services 25.1 0 1 1

 Other services from non-Federal sources 25.2 4 4 4

 Other goods and services from Federal sources 25.3 5 5 5

 Supplies and materials 26.0 2 1 1

 Equipment 31.0 0 1 1

 Land and structures 32.0 1 1 1

 Grants, subsidies, and contributions 41.0 3 3 3

 Total new obligations 99.9 24 25 25
2015 Budget Justifications Bureau of Land Management

Page XIV - 8 Chapter XIII –Miscellaneous Trust Funds

Budget Schedules – Current Law

Account Symbol and Title

14X9971

Miscellaneous Trust Funds Line 2013 Act 2014 CY 2015 BY

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 101 108 108

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-9971] 1000 20,500
Helium Fund and 

Operations 

 

Bureau of Land Management 2015 Budget Justifications

Chapter XV –Helium Fund Page XV - 1

Helium Fund and Operations

Appropriations Language

No Appropriations Language

Explanation

No appropriations language is necessary. The Helium Stewardship Act of 2013, Public Law No. 

113-40, provides the authority and funding for operation of the program. 
2015 Budget Justifications Bureau of Land Management

Page XV - 2 Chapter XV –Helium Fund

Summary of Requirements ($000)

Comparison

by Activity/

Subactivity

2013

Actual

2014 

Enacted

2015 Change from 

2014 

(+/-)

Program 

Changes

(+/-)

Budget

Request

FT

E

Amount FTE Amount FTE Amount FTE Amount FTE Amount

Helium Fund 54 203,002 54 23,554 0 0 54 20,883 0 -2,671

Helium Fund 54 203,002 54 23,554 0 0

1 54 20,883 0 -2,671

Offsetting Collections 0 -203,002 0 -23,554 0 0

1 0 -20,883 0 -2,671

Operating Programs: 54 203,002 54 23,554 0 0 54 20,883 0 -2,671

Production & Sales 17 197,888 17 18,576 0 0

1 17 18,456 0 -120

Transmission & Storage Operations 18 3,000 18 3,010 0 0

1 18 250 0 -2,760

Administrative & Other Expenses 19 2,114 19 1,968 0 0

1 19 2,177 0 209

1Note: The change from 2013 to 2014 and 2015 is because in those years collections in excess of operating costs are no longer credited to the helium revolving fund, but are 

deposited to a General Fund receipt account at year end. Only the collections needed to operate the helium program are credited to the revolving fund. 
Bureau of Land Management 2015 Budget Justifications

Chapter XV –Helium Fund Page XV - 3

Justification of 2015 Program Changes

The 2015 budget request for the Helium Fund and Operations program is $20,883,000 and 54

FTEs, a program decrease of $2,671,000 from the 2014 estimate. The amount of the 2015 

budget request is based on estimated costs of natural gas and liquid gas sales operations of the 

Crude Helium Enrichment Unit, and oversight of helium production on Federal lands. Revenues 

from helium sales for 2015 are projected to be lower than the 2014 level. The Helium 

Stewardship Act of 2013 requires the BLM to hold sales in 2014 for helium that will be delivered 

in 2015 and for a portion of the helium that will be delivered in 2016. Therefore the BLM will 

receive payment in 2014 for revenues for helium to be delivered in 2015 and for 250 MMCF to 

be delivered in 2016.

Program Overview

The Helium Act Amendments of 1960, Public Law 86–777 (50 U.S.C. 167), authorized activities 

necessary to provide sufficient helium to meet the current and foreseeable future needs of 

essential government activities. The Helium Privatization Act of 1996 (HPA), Public Law 104–

273, provided for the eventual privatization of the program and its functions, specifying that once 

the helium debt is retired, the Helium Production Fund would be dissolved. The debt was repaid 

at the beginning of fiscal year 2014. The Helium Stewardship Act of 2013 (P.L. 113-40)

provided for continued operation of the Helium program while facilitating a gradual exit from the 

helium market. 

The Helium Stewardship Act established the following goals of the BLM’s Helium program are: 

 Continued storage and transmission of crude helium; 

 Oversight of the production of helium on Federal lands; 

 Administration of in-kind and open market crude helium gas sale programs. 

To minimize impacts to the helium market, the Helium Stewardship Act provides a "glide path" 

from the sales mandated under HPA, increasing the sales price of helium through an auction 

mechanism and reducing the total volume of helium sold each year, until the amount in storage 

reaches 3.0 billion cubic feet. At that point, the remaining helium will be reserved for Federal 

users. Additionally, the Helium Stewardship Act provides for a hard deadline to sunset the 

program and sell off the program assets by 2021. 

The Helium Stewardship Act requires a sale to be held in 2014 for delivery in 2014, 2015 and 

2016, resulting in a one-time increase in collections in 2014. Collections in excess of operating 

costs are deposited to a receipt account and are not shown in the Summary of Requirements 

table as revenue. The table below shows actual and estimated collections for 2013 through 

2015. 

$ in thousands

2013 Actual 2014 Estimate 2015 Estimate

Revenues 203,002 200,762 47,474
2015 Budget Justifications Bureau of Land Management

Page XV - 4 Chapter XIII –Helium Fund

The BLM’s Helium Program is currently responsible for the following operational activities:

 Storing and transmitting of Federal and private crude helium via the helium storage 

system;

 Administering helium fee and royalty contracts for helium extracted from gas produced 

on Federal lands;

 Administering the in-kind and open market crude helium gas sale program; and

 Conducting helium resource evaluation and reserve tracking to determine the extent of 

helium resources.

The helium storage system ensures that excess helium produced from natural gas processing 

plants connected to the pipeline network is conserved for future use. Federally-owned natural 

gas containing marketable helium reserves will be identified and contracted for sale or royalty to 

enhance conservation of crude helium already in storage.

Funding History

 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, 

pursuant to the Helium Stewardship Act of 2013. 

Funds generated from the sale of helium were used to repay the Helium Debt. The Helium Debt 

was retired at the beginning of fiscal year 2014. 

2015 Program Performance

The amount of the budget request is based on estimated costs of natural gas and liquid gas 

sales operations of the Crude Helium Enrichment Unit, and oversight of helium production on 

federal lands. The income derived from crude helium sales, from private helium storage, and 

from fee sales/royalty payments for helium extracted from Federal lands will continue to pay 

for the full costs of the program.

Helium Fund- The Helium Fund accounted for collections of approximately $206.0 million in 

2013. The Helium Stewardship Act of 2013 requires the BLM to hold sales in 2014 for helium 

that will be delivered in 2015 and for a portion of the helium that will be delivered in 2016. 

Therefore, the BLM will receive payment in 2014 for revenues for the helium to be delivered in 

2015 and 2016.
Bureau of Land Management 2015 Budget Justifications

Chapter XV –Helium Fund Page XV - 5

Budget Schedules – Current Law

Account Symbol and Title

14X4053

Helium Fund Line 2013 Act 2014 CY 2015 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Production and sales 0801 11 18 16

 Transmission and storage 0802 3 5 3

 Administration and other expenses 0803 3 2 2

Total new obligations 0900 17 25 21

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 28 214 214

 Recoveries of prior year unpaid obligations 1021 1 0 0

 Unobligated balance (total) 1050 29 214 214

 Budget authority:

 Spending authority from offsetting collections, 

mandatory:

 Collected 1800 203 201 47

 Capital transfer of spending authority from 

offsetting collections to general fund 1820 0 -176 -26

 New and/or unobligated balance of spending 

authority from offsetting collections temporarily 

reduced 1823 -1 0 0

 Spending auth from offsetting collections, mand 

(total) 1850 202 25 21

 Spending auth from offsetting collections, mand -

Computed Totals 1850-20 202 25 21

 Mandatory, Authorizing Committee

 Spending authority from offsetting collections 

[Text] 1850-40 202 25 21

 Baseline Program [Text] 1850-50 25 21

Total budgetary resources available 1930 231 239 235

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 214 214 214

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 11 13 24

 Obligations incurred, unexpired accounts 3010 17 25 21

 Outlays (gross) 3020 -14 -14 -34

 Recoveries of prior year unpaid obligations, 

unexpired 3040 -1 0 0
2015 Budget Justifications Bureau of Land Management

Page XV - 6 Chapter XIII –Helium Fund

Budget Schedules – Current Law

Account Symbol and Title

14X4053

Helium Fund Line 2013 Act 2014 CY 2015 BY

 Unpaid obligations, end of year 3050 13 24 11

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 11 13 24

 Obligated balance, end of year 3200 13 24 11

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 202 25 21

 Outlays, gross:

 Outlays from new mandatory authority 4100 2 4 3

 Outlays from mandatory balances 4101 12 10 31

 Outlays, gross (total) 4110 14 14 34

 Offsets against gross budget authority and 

outlays:

 Offsetting collections (collected) from:

 Mandatory, Authorizing Committee

 Policy Program [Text] 4123-41 -203 -201 -47

 Baseline Program [Text] 4123-71 -201 -47

 Budget authority, net (mandatory) 4160 -1 -176 -26

 Outlays, net (mandatory) 4170 -189 -187 -13

Budget authority, net (total) 4180 -1 -176 -26

Outlays, net (total) 4190 -189 -187 -13

Memorandum (non-add) entries:

 Unavailable balance, SOY: Offsetting collections 5090 0 1 1

 Unavailable balance, EOY: Offsetting collections 5091 1 1 1

 Physical assets:

 Major equipment:

 Other physical assets:

 Direct Federal programs:

 Budget Authority 1352-01 -1 -176 -26

 Outlays 1352-02 -189 -187 -13

Balance Sheet (F) ($ in Millions)

ASSETS:

 Federal assets:

 Fund balances with Treasury 1101 228

 Other Federal assets:
Bureau of Land Management 2015 Budget Justifications

Chapter XV –Helium Fund Page XV - 7

Budget Schedules – Current Law

Account Symbol and Title

14X4053

Helium Fund Line 2013 Act 2014 CY 2015 BY

 Inventories and related properties 1802 109

 Property, plant and equipment, net 1803 2

 Other assets 1901 170

Total assets 1999 509

LIABILITIES:

 Federal liabilities:

 Interest payable 2102 0

 Debt 2103 44

 Other 2105 185

Total liabilities 2999 229

NET POSITION:

 Cumulative results of operations 3300 280

Total liabilities and net position 4999 509

Object Classification (O) ($ in Millions)

Reimbursable obligations:

 Personnel compensation:

 Full-time permanent 11.1 4 4 4

 Civilian personnel benefits 12.1 1 1 1

 Communications, utilities, and miscellaneous 

charges 23.3 2 4 4

 Other services from non-Federal sources 25.2 1 5 4

 Supplies and materials 26.0 1 3 2

 Grants, subsidies, and contributions 41.0 8 8 6

 Total new obligations 99.9 17 25 21

Employment Summary (Q)

Reimbursable civilian full-time equivalent 

employment 2001 54 54 54
2015 Budget Justifications Bureau of Land Management

Page XV - 8 Chapter XIII –Helium Fund

This page intentionally left blank
Abandoned Well 

Remediation Fund 

 

Bureau of Land Management 2015 Budget Justifications

Chapter XVI –Abandoned Well Remediation Page XVI - 1

Abandoned Wells Remediation Fund

Appropriations Language

No Appropriations Language

Appropriations Language Citations

Public Law 113-40, 

Helium Stewardship Act 

of 2013

Provides funding to remediate, reclaim and close 

abandoned oil and gas wells on current and former National 

Petroleum Reserve Land. 
2015 Budget Justifications Bureau of Land Management

Page XVI - 2 Chapter XVI –Abandoned Well Remediation

Summary of Requirements

(Dollars in Thousands)

2013

Actual

2014

Enacted

Program 

Changes 

(+/-)

2015

Pres. 

Budget

Change 

from 2014

Enacted(+/-)

Abandoned Well Remediation 

Fund

0 10,000 0 36,000 +26,000
Bureau of Land Management 2015 Budget Justifications

Chapter XVI –Abandoned Well Remediation Page XVI - 3

Program Overview

This permanent appropriation was enacted in the Helium Stewardship Act of 2013. The BLM is 

responsible for managing 136 wells within the 22.8 million acre National Petroleum Reserve in 

Alaska (NPR-A). All well sites have been thoroughly reviewed and grouped into three 

categories:

Wells Requiring No Additional BLM Action 68

Wells Currently In Use By USGS 18

Wells Currently Requiring BLM Action 50

The wells requiring no additional action include those wells that have previously been 

remediated by the BLM or other Federal agencies, those conveyed to the North Slope Borough 

under the Barrow Gas Field Transfer Act of 1984 (P.L. 98-366), and shallow test boreholes that 

present no subsurface or surface risks. The wells currently being used by the U.S. Geological 

Survey (USGS) are part of climate change monitoring studies, and the BLM will work with the 

USGS to establish a plan for the eventual disposition and remediation of these wells when they 

are no longer necessary for research.

The remaining 50 wells were analyzed based on details from the 2013 Legacy Wells Summary 

Report (released May 2013) and put into an action plan within the 2013 Legacy Wells Strategic 

Plan (released September 2013). The 50 wells accounted for the potential surface and 

subsurface risks posed to human health, safety, and the environment. The plan presents a 

near-term strategy for addressing the highest priority wells. The strategy is dynamic and flexible, 

meaning that the order of remediation work will be adjusted as site conditions change and 

additional information becomes available.

Critical Factors – The BLM will use an adaptive management approach and adjust to the 

dynamic situation on the ground in the NPR-A by continuing to conduct risk evaluations, monitor 

changing site conditions, evaluate strategic plan effectiveness, and develop new or updated 

actions if necessary to remediate legacy well sites. The BLM will continue to work with 

stakeholders, such as the North Slope Borough (NSB) and the Arctic Slope Regional 

Corporation, to coordinate well plugging and clean-up activities, determine future prioritization, 

and assure cost effective closure of legacy well sites. The BLM will coordinate with Barrow Gas 

Field staff and the Alaska Oil and Gas Conservation Commission (AOGCC) on technical 

concerns for each well, and with the NSB to identify research opportunities in the Simpson 

Peninsula. The BLM will coordinate any contaminant investigation of a potential release with the 

Alaska Department of Environmental Conservation (ADEC) and appropriate stakeholders. 

Other Funding Sources

The Legacy Well Program has historically been funded out of the Oil and Gas Management 

Program with an annual $1.0 million from the allocation to BLM-Alaska. This funding will 

continue to be used to conduct well plugging, surface monitoring, and surface cleanup. 

2014 and 2015 Program Performance

The BLM anticipates following the path outlined in the 2013 Legacy Wells Strategic Plan for the 

duration of available funding from this Abandoned Well Remediation Fund. The BLM plans to 

work in three separate geographic areas; Umiat, Barrow and the Simpson Peninsula. 
2015 Budget Justifications Bureau of Land Management

Page XVI - 4 Chapter XVI –Abandoned Well Remediation

The BLM currently has an interagency agreement (IA) with the Army Corps of Engineers and is 

going through the permitting process to complete a plugging operation for the Umiat #3 well this 

winter. The BLM has been coordinating with the State of Alaska (Alaska Oil and Gas 

Conservation Commission and State Historic Preservation Office) and collaboratively identified 

four remaining wellheads from previously plugged and abandoned wells in the Umiat area that 

could be removed. The wellhead removal is necessary to eliminate a potential surface hazard.

In the summer months of 2014, a contract is in place to conduct surface cleanup on three wells 

on the Simpson Peninsula (Simpson Core Test #26, #30, and #30A). These wells were drilled in 

an oil seep and still contain unsightly solid wastes that have garnered negative attention by BLM 

stakeholders.

In 2015, the BLM plans to continue any work not completed in the Umiat area as well as begin a 

two-year, seven well plugging operation in the Barrow area. 
Bureau of Land Management 2015 Budget Justifications

Chapter XVI –Abandoned Well Remediation Page XVI - 5

Budget Schedules

Account Symbol and Title

14X2640

Abandoned Well Remediation Fund

Line 2013 

Act

2014 

CY

2015 

BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Direct program activity 0001 0 5 7

Total new obligations 0900 0 5 7

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 0 0 5

 Discretionary unobligated balance brought fwd, Oct 1 1001 0 0

 Budget authority:

 Appropriations, mandatory:

 Appropriation 1200 0 10 36

 Appropriations, mandatory (total) 1260 0 10 36

 Appropriations, mandatory - Computed Totals 1260-20 0 10 36

 Mandatory, Authorizing Committee

 Appropriation [Abandoned well remediation fund] 1260-40 0 10 36

 Baseline Civilian Pay 1260-50 0 0

 Baseline Non-Pay 1260-50 10 36

Total budgetary resources available 1930 0 10 41

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 0 5 34

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 1

 Obligations incurred, unexpired accounts 3010 0 5 7

 Outlays (gross) 3020 0 -4 -3

 Unpaid obligations, end of year 3050 0 1 5

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 1

 Obligated balance, end of year 3200 0 1 5

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 10 36

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 4 0

 Outlays from mandatory balances 4101 0 0 3

 Outlays, gross (total) 4110 0 4 3

 Budget authority, net (mandatory) 4160 0 10 36
2015 Budget Justifications Bureau of Land Management

Page XVI - 6 Chapter XVI –Abandoned Well Remediation

Budget Schedules

Account Symbol and Title

14X2640

Abandoned Well Remediation Fund

Line 2013 

Act

2014 

CY

2015 

BY

 Outlays, net (mandatory) 4170 0 4 3

Budget authority, net (total) 4180 0 10 36

Outlays, net (total) 4190 0 4 3

 Physical assets:

 Construction and rehabilitation:

 Research and development facilities:

 Direct Federal Programs:

 Budget Authority 1312-01 0 10 36

 Outlays 1312-02 0 4 3

Object Classification (O) ($ in Millions)

Direct obligations:

 Other services from non-Federal sources 25.2 0 5 7
Administrative 

Provisions 

 

Bureau of Land Management 2015 Budget Justifications

Chapter XVII – Administrative Provisions Page XVII - 1

Administrative Provisions

Appropriations Language

The Bureau of Land Management may carry out the operations funded under this Act by direct 

expenditure, contracts, grants, cooperative agreements and reimbursable agreements with 

public and private entities, including with States. Appropriations for the Bureau shall be 

available for purchase, erection, and dismantlement of temporary structures, and alteration and 

maintenance of necessary buildings and appurtenant facilities to which the United States has 

title; up to $100,000 for payments, at the discretion of the Secretary, for information or evidence 

concerning violations of laws administered by the Bureau; miscellaneous and emergency 

expenses of enforcement activities authorized or approved by the Secretary and to be 

accounted for solely on the Secretary's certificate, not to exceed $10,000: Provided, That 

notwithstanding Public Law 90–620 (44 U.S.C. 501), the Bureau may, under cooperative costsharing and partnership arrangements authorized by law, procure printing services from 

cooperators in connection with jointly produced publications for which the cooperators share the 

cost of printing either in cash or in services, and the Bureau determines the cooperator is 

capable of meeting accepted quality standards: Provided further, That projects to be funded 

pursuant to a written commitment by a State government to provide an identified amount of 

money in support of the project may be carried out by the Bureau on a reimbursable basis. 

Appropriations herein made shall not be available for the destruction of healthy, unadopted, wild 

horses and burros in the care of the Bureau or its contractors or for the sale of wild horses and 

burros that results in their destruction for processing into commercial products. (Department of 

the Interior, Environment, and Related Agencies Appropriations Act, 2014.)

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.
2015 Budget Justifications Bureau of Land Management

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Appendices 

Bureau of Land Management 2015 Budget Justifications

Appendices Page XVIII - 1

Appendices

Appendix 1

Employee Count By Grade

Total Employment*

2013 2014 2015

Grade Actual Estimate Estimate

Executive Level V 0 1 1

Subtotal 0 1 1

Senior Level 1 2 2

Subtotal 1 2 2

SES 21 21 21

Subtotal 21 21 21

GS - 15 100 100 100

GS - 14 349 349 351

GS - 13 934 934 948

GS -12 1,603 1,603 1,630

GS -11 2,645 2,645 2,683

GS -10 49 49 50

GS - 9 1,218 1,217 1,236

GS - 8 262 262 266

GS - 7 1,117 1,116 1,133

GS - 6 536 536 544

GS - 5 612 612 621

GS - 4 580 580 588

GS - 3 267 267 271

GS - 2 58 58 59

GS - 1 4 4 4

Subtotal 10,334 10,330 10,484

Other Pay Schedule Systems 477 485 490

Total Employment* (actual/projected) at end of FY 10,833 10,839 10,998

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

Total FTE Usage** (actual/projected) 10,228 10,234 10,371

** 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.
2015 Budget Justifications Bureau of Land Management

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Bureau of Land Management 2015 Budget Justifications

Appendices Page XVIII - 3

Appendix 2

BLM Organization Chart

Director Deputy Director Policy and Programs Office of Law Enforcement and Security Deputy Director Chief of Staff Operations

Resources and Planning California Sacramento, CA

Idaho Boise, ID

New Mexico Santa Fe, NM

Wyoming Cheyenne, WY

Arizona Phoenix, AZ

Eastern States Washington, DC

Nevada Reno, NV

Utah Salt Lake City, UT

Alaska Anchorage, AK

Colorado Lakewood, CO Montana and Dakotas Billings, MT

Oregon and Washington Portland, OR

National Landscape Conservation System and Community Partnerships Human Capital Management

Energy, Minerals and Realty Management

Fire and Aviation

Communications Business, Fiscal and Information Resources Management

National Operations Center Denver, CO

BUREAU OF LAND MANAGEMENT

Headquarters – Washington, DC State Offices
2015 Budget Justifications Bureau of Land Management

Page XVIII - 4 Appendices

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