Mission Statements

The mission of the Department of the Interior is to protect and provide

access to our Nation’s natural and cultural heritage and honor our trust

responsibilities to Indian tribes and our commitments to island communities.

The mission of the Bureau of Reclamation is to manage, develop, and

protect water and related resources in a environmentally and economically

sound manner in the interest of the American public.
Resource Management Plan Guidebook

Planning for the Future

Department of the Interior

Bureau of Reclamation

February 2003
Acknowledgments

This Resource Management Plan Guidebook (Guidebook) was prepared by the Bureau of Reclamation’s

(Reclamation) Technical Service Center (TSC) under the direction and guidance of the Office of

Policy. The Office of Policy and the TSC wish to thank the many individuals throughout the agency

who contributed to the preparation of this Guidebook. During this process, an enormous amount of

time was spent by Reclamation staff in reviewing drafts, providing comments, rewriting sections, and

attending meetings. It was truly a team effort. The preparers and major contributors were:

Preparers

Name Office Contribution

Darrell Welch

Carol Berry

Sharon Leffel

Charlie Brown

Tony Rozales

Technical Service Center

Technical Service Center

Technical Service Center

Technical Service Center

Technical Service Center

Primary author/team management

Technical writer

Editorial Assistant

Graphics

Graphics

Major contributors

Name Office Title and/or discipline

Mike Armbruster

Susan Black

David Bradley

Darrell Cauley

Bruce Brown

Kip Gjerde

Del Holz

Jim Jensen

Jerry Jacobs

Chuck Johnson

Mike Knipps

Lee Laurence

Joe Liebhauser

Fred Liljegren

Tom Lincoln

Lilas Lindell

Vernon Lovejoy

Bill Martin

Kris Mills

Tara Moberg

Chris Pfaff

Alan Schroeder

Rusty Schuster

Carolyn Burpee-Stone

Donald Treasure

Judith Troast

Basia Trout

Technical Service Center

Technical Service Center

Pacific Northwest Regional Office

Office of Policy – Denver

Office of Policy – Washington D.C.

Great Plains Regional Office

Technical Service Center

Provo Area Office

Great Plains Regional Office

Mid-Pacific Regional Office

Office of Policy – Denver

Mid-Pacific Regional Office

Lower Colorado Regional Office

Upper Colorado Regional Office

Office of Policy – Denver

Office of Policy – Denver

Office of Policy – Denver

Lower Colorado Regional Office

Lower Colorado Regional Office

Eastern Colorado Area Office

Office of Policy – Denver

Western Colorado Area Office

Office of Policy – Denver

Pacific Northwest Regional Office

Office of Policy – Denver

Office of Policy – Washington, D.C.

Northern California Area Office

Chief, Ecological Planning and Assessment

Social Science Analyst – Indian Trust Assets

Regional Planning Coordinator

Manager, Environmental Planning and Coordination

Policy Analyst – Recreation

Natural Resource Specialist

Manager, Resource Management and Planning

Landscape Architect

Natural Resource Specialist

Chief, Land Resources

Office of Policy Planning Program Manager

Resource Management Projects Officer

Regional Realty Officer

Outdoor Recreation Planner

Federal Preservation Officer

Policy Analyst

Policy Analyst – Recreation

Natural Resource Specialist

Manager, Program Management

Natural Resource Specialist

Historian

Natural Resource Specialist

Manager, Lands, Recreation, and Cultural

Resources

Regional Resource Management Plan Coordinator

Policy Analyst – NEPA/ESA

Policy Analyst – Environmental

Natural Resource Specialist


Acronyms and Abbreviations

BA biological assessment

BIA Bureau of Indian Affairs

BLM Bureau of Land Management

BO biological opinion

CE categorical exclusion

CEQ Council on Environmental Quality

CFR Code of Federal Regulations

CIS Customer Information System

DM Departmental Manual

DOI Department of the Interior

EA environmental assessment

EIS environmental impact statement

E.O. Executive order

EPA Environmental Protection Agency

ESA Endangered Species Act

FACA Federal Advisory Committee Act, Public Law 92-463

FLPMA Federal Land Policy and Management Act of 1976

FONSI finding of no significant impact

FS U.S. Forest Service

FWCA Fish and Wildlife Coordination Act of 1958

FWS U.S. Fish and Wildlife Service

GIS geographic information system

GPO Government Printing Office

ID interdisciplinary

Indian American Indian

ITAs Indian Trust Assets

MATS Multi-Attribute Tradeoff System

MOA Memorandum of Agreement

MOU Memorandum of Understanding

NAGPRA Native American Graves Protection and Repatriation Act

National Register National Register of Historic Places

NEPA National Environmental Policy Act
NHPA National Historic Preservation Act

NOAA Fisheries National Oceanic and Atmospheric Administration Fisheries

OHV off-highway vehicle

O&M operation and maintenance

OMB Office of Management and Budget

P&Gs Economic and Environmental Principles and Guidelines for Water

 and Related Land Resources Implementation Studies 

PIP Public Involvement Plan

P.L. Public Law

Project Reclamation Project

Reclamation Bureau of Reclamation

RMP Resource Management Plan

RNAs research natural areas

ROS recreation opportunity spectrum

SHPO State Historic Preservation Officer

SOW statement of work

Task Force Department of the Interior Task Force

TCPs traditional cultural properties

TSC Technical Service Center, Bureau of Reclamation, Denver,

 Colorado

WROS Water Recreation Opportunity Spectrum
Contents

Page

Executive Summary

Chapter I – Overview

Introduction ................................................................... I-1

Reclamation Goals .......................................................... I-1

Departmental Goals ........................................................ I-2

Reclamation Strategy ........................................................ I-3

Entity Responsible for Preparing a Resource Management Plan .................... I-4

Other Federal Entities ................................................. I-4

Reclamation .......................................................... I-4

Authorization .................................................................. I-5

Supplemental Guidance ......................................................... I-6

Purpose and Benefit ............................................................ I-7

Organization of the Resource Management Plan Guidebook ............................... I-9

Chapter II – Administration

Introduction .................................................................. II-1

Responsibility ................................................................. II-1

Phase I Preliminary Resource Management Plan Administrative Actions ............... II-2

1. Defining Management Areas .............................................. II-2

2. Process for Prioritizing Management Areas .................................. II-3

3. Budgeting .............................................................. II-4

4. NEPA Compliance ...................................................... II-5

5. Preparing a Statement of Work ............................................ II-6

6. Contract Award ......................................................... II-8

7. Office of Management and Budget Clearance ................................ II-8

8. Establishing a Team Leader and Interdisciplinary Team ....................... II-9

Phase II Administrative Actions Required During the Preparation of a

 Resource Management Plan .................................................. II-11

1. Preparation of Work Plans and Schedule ................................... II-12

2. Preparation of a Public Involvement Plan .................................. II-13

3. Endangered Species Act, Fish and Wildlife Coordination Act, and

Migratory Bird Treaty Act Consultations ................................ II-13

4. National Historic Preservation Act Consultation ............................ II-14

5. Indian Trust Assets Consultation ......................................... II-15

6. Indian Sacred Sites ..................................................... II-17

7. Native American Graves Protection and Repatriation Act ..................... II-17

8. Federal Advisory Committee Act Initiation and Documentation ............... II-17

9. Preparation and Maintenance of an Active Mailing List ....................... II-18
ii

Resource Management Plan Guidebook

February 2003

Chapter II – Administration (continued)

10. Preparation of Public Notices, Newsletters, or Updates ..................... II-19

11. Printing ............................................................. II-19

Phase III Post-Administrative Actions Required After Resource

 Management Plan Completion ................................................ II-19

1. Plan Distribution ...................................................... II-20

2. Integration with Other Programs ......................................... II-20

3. Resource Management Plan Implementation ............................... II-21

4. Resource Management Plan Monitoring Program ........................... II-21

5. Resource Management Plan Adjustments .................................. II-22

6. Administrative Record .................................................. II-22

Chapter III – Planning Process

Introduction ................................................................. III-1

Level of Planning Effort ....................................................... III-1

Planning Process Steps ........................................................ III-3

1. Identification of Issues, Opportunities, and Constraints ...................... III-4

Issues ........................................................... III-4

Opportunities .................................................... III-4

Constraints ...................................................... III-5

2. Development of Planning Criteria ........................................ III-5

3. Inventory Data and Information Collection ................................ III-6

4. Analysis of Resources and Management Framework ......................... III-7

5. Formulation of Alternatives ............................................. III-8

6. Evaluation of Alternatives .............................................. III-9

7. Selection of Preferred Alternative(s) ..................................... III-10

8. Preparation of a Final Resource Management Plan and NEPA

Document ...................................................... III-11

9. Implementation and Monitoring of a Resource Management Plan ............ III-12

10. Amendments and Revisions to a Resource Management Plan ................ III-15

NEPA Compliance Concurrent with the Planning Process ......................... III-15

Chapter IV – Components of a Resource Management Plan

Introduction ................................................................. IV-1

Standard Format ............................................................. IV-2

Stand Format Components Included in a Resource Management Plan ................ IV-3

1. Cover ................................................................ IV-3

2. Inside Cover .......................................................... IV-4

3. RMP Document Guide (Optional) ....................................... IV-6

4. Finding of No Significant Impact (Optional) ............................... IV-6
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February 2003

Page

Chapter IV – Components of a Resource Management Plan (continued)

5. Title Page ............................................................ IV-6

6. Inside Title Page ...................................................... IV-6

7. Preface (Optional) ..................................................... IV-7

8. Executive Summary (Optional) .......................................... IV-7

9. Abbreviations and Acronyms ............................................ IV-7

10. Table of Contents .................................................... IV-9

11. Essential Components Included in a Resource Management Plan ............. IV-9

A. Introduction ................................................... IV-10

B. Purpose Statement .............................................. IV-10

C. Authority ...................................................... IV-10

D. Organization and Scope of an RMP Document ...................... IV-11

E. Project History ................................................. IV-11

F. Location/Setting ................................................ IV-12

G. Overview of Public Involvement Efforts ........................... IV-12

H. Overview of Consultation Efforts ................................. IV-12

I. Management Framework ......................................... IV-12

J. Planning Process ................................................ IV-13

K. Opportunities and Constraints .................................... IV-13

L. Issues and Issue Categories ....................................... IV-14

M. Existing Resource Inventory/Existing Condition .................... IV-15

N. Goals and Objectives ........................................... IV-16

O. Desired Future Condition ........................................ IV-17

P. Management Action(s)/Direction(s) ................................ IV-17

Q. Implementation Procedures (Monitoring, Plan Revision or

 Amendment, and Standards and Guides) ......................... IV-18

Monitoring ................................................... IV-18

Plan Revision or Amendment .................................... IV-19

Standards/Guides ............................................. IV-19

Water Resources, Quality, and Use ........................... IV-20

Recreation-Related ........................................ IV-20

Fish, Wildlife, and Vegetation ............................... IV-20

Lands and Land-Related .................................... IV-21

Other ................................................... IV-21

12. List of Preparers .................................................... IV-22

13. References/Bibliography ............................................. IV-23

14. Glossary of Terms ................................................... IV-24

15. Attachments/Appendices ............................................. IV-24
iv Resource Management Plan Guidebook

February 2003

Page

Chapter V – Supplemental Resource Management Plan Information

Introduction .................................................................. V-1

Interdisciplinary Team Considerations ............................................ V-1

Graphics ..................................................................... V-3

GIS Resource Mapping ........................................................ V-5

Manipulation and Analysis with GIS ........................................ V-11

Photography ................................................................. V-11

Photo Points Around the Management Area ...................................... V-16

Glossary

Figures

Figure Page

II-1 Section 106 regulations flowchart ........................................... II-16

III-1 Planning process flowchart ................................................ III-2

III-2 Working group process .................................................. III-14

III-3 Planning schedule process ................................................ III-17

III-4 CE process flowchart (NEPA Handbook) ................................... III-18

III-5 EA process flowchart (NEPA Handbook) ................................... III-20

III-6 EIS process flowchart (NEPA Handbook) ................................... III-21

AttachmentsAttachments

Attachment

A Environmental Laws, Regulations, and Executive Orders

B Multi-Attribute Tradeoff System (MATS) Priority System

C Diagrammatic Sketch of Prioritization Process

D Examples of a Statement of Work

E Work Plan Questions

F Example of a Work Plan

G Example of a Typical Schedule

H Example of a Public Involvement Plan

I The Public Meeting Survival Guide (Fish and Wildlife Service)

J Series of Newsletters from Heron Reservoir, New Mexico

K Example of Form 7-2525
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Contents

February 2003

Attachment

L Resource Management Plan Process Outline

M Part I – Examples of RMP/EA Goals and Objectives from Canyon Ferry

 Reservoir RMP/EA; Part II – Examples of RMP Goals and Objectives

 from Agate Lake RMP

N Opportunities

O Possible Planning Criteria

P Part I – Examples of a Table of Contents for RMP Documents from

 Agate Lake, Ririe Reservoir, and Scofield Reservoir; Part II – Example

 of a Table of Contents for an Integrated RMP/NEPA Document from

 Canyon Ferry RMP/EA

Q Document Guide

R Example of a Preface from an Integrated RMP/NEPA Document

S Examples of Geographic Information System Maps

T Examples of Resources and Resource Information that Should be

 Addressed in an RMP

U Example of a Desired Future Condition Statement from Starvation

 Reservoir (UC Region)

V General Guidance on Developing Management Actions that may be

 Appropriate to Include in an RMP

W Monitoring Review Forms
1

 There may be small scattered tracts of land under the jurisdiction of Reclamation that may not require

the completion of an RMP. When Reclamation Project use or size, location, and access of a tract of land does not lend

itself to resource allocations or multiple use, expenditure of funds to develop an RMP may be unwarranted.

Chapter

I OverviewOverview

Introduction

The Bureau of Reclamation’s (Reclamation) mission statement declares that it is “to manage,

develop, and protect water and related resources in an environmentally and economically

sound manner in the interest of the American public.” Planning, through Resource

Management Plans (RMPs), provides specific direction for Reclamation to accomplish its

mission at water resource development projects. Reclamation’s 2000 – 2005 Strategic Plan

indicates it will develop, monitor, and update RMPs for lands directly managed by

Reclamation and for lands cooperatively managed with another Federal or non-Federal

entity.1

The guidance provided herein is discretionary, and the attachments are to be considered only

as reference materials; however, the guidance provided will result in an RMP document that

can effectively assist Reclamation in planning, decisionmaking, and implementing actions and

activities affecting the resources under its jurisdiction. Because resource situations/issues

differ greatly among the different Reclamation regions and from State to State, creativity and

flexibility are allowed in preparing RMP documents so that they can address specific issues

that meet local public expectations and address specific resource conditions. This Resource

Management Plan Guidebook is intended to be a dynamic document which will be updated,

as necessary.

The RMP is to chart the desired future condition for the area in question—the resultant

biological, physical, and social condition that Reclamation desires to see once all the RMP

management actions have been implemented. The RMP document should be sufficiently

detailed to direct future development, but it should be flexible enough to allow resolution of

day-to-day problems.

Reclamation Goals

The demand for Reclamation lands and water is increasing at a phenomenal rate. 

Recreation use is currently expanding by an estimated 1.2 million visitors per year at

Reclamation reservoirs. Because there is increasing competition for the use of Federal 

lands by a variety of users (e.g., recreationists, power companies, oil and gas companies,
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Resource Management Plan Guidebook

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2

 A “management area” can be described as a geographic or study area that can be effectively managed as a relatively

independent unit. Project and management areas are not necessarily synonymous because there can be several

management areas within a project. A management area may be a reservoir area, wildlife area, or canal, or an area that has

similar problems or issues.

and special interest groups), RMPs are a valuable tool that will help Reclamation make

informed decisions affecting competing uses of its lands. In addition, the overall objectives

for completing an RMP should be consistent with the objectives identified in Reclamation's

2000 – 2005 Strategic Plan, which include the following:

P Manage, develop, and protect water and related resources to meet the needs of current

and future generations

P Operate, maintain, and rehabilitate facilities safely, reliably, and efficiently to provide

Reclamation Project (Project) benefits

P Advance Reclamation's organizational effectiveness

An RMP provides management direction consistent with authorized Project purposes while,

at the same time, recognizing the rights and interests of existing contracts, legislation, and

other entities concerning an identified land area that is under the jurisdiction of Reclamation. 

An RMP identifies measures necessary to achieve a desired future condition of the resources

within a management area2 covered by the RMP. Management direction is set forth in the

form of goals, objectives, standards, and guidelines. These, in turn, set the stage for

management actions, activities, and uses that affect management frameworks and

partnerships, land management, and water, recreation, visual, natural, and cultural resources. 

The management direction could be general in nature to the management area (area-wide) or

unique to a portion of the management area (site specific). Monitoring and evaluation of an

RMP are intended to ensure conformance and good stewardship.

Departmental Goals

The Department of the Interior (DOI) has developed broad goals that provide a framework for

bureaus within the department. These goals can be found in Reclamation’s 2000 – 2005

Strategic Plan. RMPs provide the means to achieve all or part of the following goals:

P Provide recreational opportunities and adequate recreation facilities for America

P Protect the environment and preserve the Nation's natural and cultural resources
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Chapter I – Overview

February 2003

3

 The Worldwide Web address for the 2000 – 2005 Strategic Plan is <http://www.usbr.gov/gpra/ strategicplan2000-

2005.pdf>. 

4

 Report of the Budget Formulation Task Force on Resource Management Planning, DOI, November 3, 1992.

P Manage natural resources for a healthy environment and strong economy

P Meet responsibilities to Native Americans

Reclamation Strategy

Reclamation's 2000 – 2005 Strategic Plan provides overall direction for resource management activities.3

 This guidebook provides overall direction for preparing RMPs that address

the major objectives of the 2000 – 2005 Strategic Plan. Strategic Plans are continually being

updated and modified; therefore, users of this guidebook should visit the Strategic Plan Web

site periodically to determine if Reclamation’s and/or DOI’s strategies and priorities have

changed.

In 1992, a DOI Task Force (Task Force) was organized to gather information about the

resource management activities of the land and resources management bureaus within the

department and to recommend ways that the bureaus could more efficiently and effectively 

accomplish planning activities.4 The Task Force stated that “Resource management is 

integral to proper stewardship of the lands and resources the DOI manages because it is

through this dynamic planning process that land use decisions are made.”

In response to the Task Force report recommendations, Reclamation identified seven

strategies for managing land resources. The strategies developed are to:

P Responsibly manage Reclamation lands, stressing a balance of resource development, public recreation, and protection of natural and cultural resources and

environmental values

P Make Reclamation lands and facilities accessible for persons with disabilities

P Complete the inventory and evaluation of cultural resources on Reclamation lands and

develop a program to curate those resources through partnerships with museums,

universities, and other entities

P Ensure that Reclamation lands are free of illegal drugs
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Resource Management Plan Guidebook

February 2003

P Identify and resolve cases of unauthorized and disputed uses

P Continue the review of Reclamation land withdrawals in accordance with the Federal

Land Policy and Management Act of 1976 (FLPMA)

P Complete land use agreements with those interested in utilizing real property under

Reclamation’s jurisdiction, ensuring that a fair cost recovery is received

Reclamation should continue to follow these strategies to manage lands and water under its

jurisdiction and authorities and is encouraged to develop RMPs for Reclamation lands and 

water using the guidelines developed in this guidebook.

Entity Responsible for Preparing a Resource Management Plan

Reclamation has the ultimate responsibility for ensuring that an RMP is prepared and

implemented for lands under its jurisdiction and for ensuring the protection of Project facilities

and purposes. However, Reclamation has different levels of planning responsibility for lands

under its jurisdiction because its lands may be managed by a non-Federal Government entity or

another Federal entity. Regional Directors or their designee(s) have the discretion to determine if

Reclamation or another entity should pay for and prepare an RMP for a particular management

area. This decision should be made after consultation with the involved entity. An RMP should

not be initiated by Reclamation on lands managed by another Federal entity if such lands already

have an appropriate planning document that has been prepared by the other entity.

Other Federal Entities.—When another Federal entity has jurisdiction of the lands and

natural resources on an authorized Project through a legislative transfer (not just as a managing

partner), that entity should be responsible for completing an RMP using its laws, rules,

regulations, policy, and guidance (e.g., a National Recreation Area where the lands and resource

programs are managed by either the National Park Service or U.S. Forest Service). Reclamation

should participate in this planning effort as a cooperating entity to ensure that the underlying

Project purposes are protected and its needs are met.

Reclamation.—When Reclamation is the sole manager, or when a non-Federal entity or

another Federal entity manages resources and/or land through a management agreement or

contract, Reclamation is ultimately responsible for completing the RMP. Reclamation’s

managing partners should cooperate in the preparation of the RMP pursuant to the terms, 
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Chapter I – Overview

February 2003

conditions, and procedures contained in their respective agreement or contract. This cooperation

may involve cost sharing by the non-Federal or other Federal managing partner.

Regardless of which entity has lead responsibility for completing the RMP, it is important that

resource management planning be done in cooperation with all entities, groups, and individuals

that have an interest in the area or that have something to contribute to the planning effort. 

Federal agencies, such as the U.S. Fish and Wildlife Service (FWS) and Bureau of Land

Management (BLM), and State entities, such as State game and fish and parks departments, may

have inherent authorities to manage certain resources on Reclamation lands with or without

agreements. Although these entities may not be responsible for initiating an RMP, they need to

be actively involved in the planning process.

During the RMP planning process, Reclamation should consider adjoining land areas that are

under the control of other entities or individuals. Close coordination should be implemented with

these entities or individuals to ensure that prescribed land uses are compatible. Although these

entities or individuals are not responsible for preparing or funding the RMP, they should be

involved throughout the planning process.

Authorization

Reclamation’s authority to prepare RMPs is vested in the broad authority of the Reclamation Act

of 1902 (Chapter 1093, 32 Stat. 388); the Reclamation Project Act of 1939 (Chapter 418, 53 Stat.

1187); the Federal Water Project Recreation Act (Public Law [P.L.] 89-72, 79 Stat. 213); and,

more specifically, in the Reclamation Recreation Management Act of 1992 (P.L. 102-575, Title 28

[2805(c)(1)(A)]). The Reclamation Recreation Management Act authorized the preparation of

RMPs to “provide for the development, use, conservation, protection, enhancement, and

management of resources of Reclamation lands in a manner that is compatible with the

authorized purposes of the Reclamation Project associated with the Reclamation lands.” In

addition, specific legislation for a Project may provide additional authorization to prepare

planning documents such as RMPs.

The management of federally owned lands is governed by a multitude of laws, Executive orders

(E.O.), rules, regulations, policies, directives, and standards. Attachment A lists some of the

more important laws and regulations that apply to lands under the jurisdiction of Reclamation

and also identifies major elements of each. A summary of related environmental and cultural

resource laws, rules, regulations, and instructions is also contained in Reclamation's National

Environmental Policy Act Handbook (NEPA Handbook).
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February 2003

Supplemental Guidance

P Land Resource Management Policies, Directives, and Standards sections of the

Reclamation Manual should be followed, as appropriate. In general, these policies,

directives, and standards reaffirm that planning documents (RMPs) should be prepared

and maintained, as needed, for all land and associated resources under Reclamation’s

jurisdiction, including acquired, withdrawn, and leased lands. The scope and detail of an

individual planning document should be commensurate with the size and value of the

lands and resources being managed; the current and projected problems, uses, and

conflicts in the area; and public interest in the area. Planning documents are to be

budgeted for, scheduled, and prepared by area offices following priorities established by

the Area Manager. In cases in which an area is being managed by a non-Federal entity,

the non-Federal entity will be expected to fully participate in the planning process and to

implement the results of the plan.

P The Decision Process Guidebook (<http://www.usbr.gov/Decision-Process>) can assist

RMP team members in the preparation of RMPs. The decision process steps needed to

successfully reach a defensible decision are outlined in the guidebook. Because the

decision process steps are similar to the planning steps presented in this document, both

can be used concurrently to ensure that “decisionmakers reach and implement a

confident, balanced decision—one capable of withstanding the scrutiny of multiple

publics and even the courts, if necessary.”

P The Water Recreation Opportunity Spectrum (WROS) Guidebook developed by

Reclamation can assist the preparers of RMPs in integrating recreation considerations into

the larger comprehensive planning effort where multiple uses and allocation of water and

land resources are necessary. The purpose of this resource guide is to provide operational

guidance on how to implement WROS in the inventory, planning, and management of

recreation opportunities on or adjacent to water resources. The guidebook details the

components of WROS and how they interface with Reclamation’s resource planning

process; provides important recreation management guidelines and standards; and

contains important related information on visitor capacity, scenic resource assessment,

and visitor monitoring.

P Reclamation’s NEPA Handbook (<http://www.usbr.gov/nepa>) describes policies and

procedures for implementing the National Environmental Policy Act (NEPA) of 1969 (42

U.S.C. 4321, et seq.), the Council on Environmental Quality’s (CEQ) Regulations for

Implementing the Procedural Provisions of NEPA (40 CFR [Code of Federal Regulations]

Parts 1500-1508) and the Departmental Manual (DM) 516 DM 1-7. Since the 

preparation and implementation of an RMP is a major Federal action, Reclamation is
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Chapter I – Overview

February 2003

required to consider the environmental impacts of the action before the RMP is

implemented. The NEPA Handbook will assist preparers of the RMP in identifying the

related environmental laws and regulations that need to be addressed during the NEPA

compliance process and how the NEPA process is implemented in conjunction with other

documents such as RMPs.

P Economic and Environmental Principles and Guidelines for Water and Related Land

Resources Implementation Studies (P&Gs) may be of value as an economic analysis

reference should land and resource development be identified in conjunction with the

RMP’s stated management goals. The Economics Group in the Technical Service Center

(TSC) has also published a number of technical memoranda providing guidance on the

various types of economic and financial analysis specifically related to land-based

development on Reclamation lands. The guidance provided in the P&Gs can help

estimate the recreation, fish, and wildlife benefits of the planning effort, if so desired. The

P&Gs were established pursuant to the Water Resources Planning Act of 1965, P.L. 89-

90, as amended, and are intended to ensure proper and consistent planning by Federal

entities in the formulation and evaluation of water and related land resources

implementation studies.

P The Federal Advisory Committee Act (FACA), P.L. 92-463, as amended, provides

guidance on establishing and maintaining advisory committees (e.g., board, commission,

council, conference, panel, task force, or other similar group), which may be established

by Reclamation to assist in the preparation of an RMP. The function of advisory

committees should be advisory only and should be established under strict adherence to

the FACA.

Other directives, standards, guidelines, and mandates for such resources as cultural areas,

recreation, lands, NEPA, and wetlands can be found on Reclamation’s intranet site under

“Manuals” or on the internet at <http://www.usbr.gov/recman/>. (Note: The Worldwide Web

addresses referenced in this guidebook may change periodically and will be updated, along with

other information, as necessary.)

Purpose and Benefit

The purpose of RMPs, which serve as a basis for future resource decisions, is to incorporate into

one document all the information pertinent to the future guidance of a management area. This

can include an analysis of the resources of the area, identification of land use suitability and

capability, land acquisition and disposal needs, determination and designation of land use zones,

and development of management policies, objectives, responsibilities, guidelines, and plans. An

RMP should set goals for the management area, establish desirable use levels, identify types of 
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Resource Management Plan Guidebook

February 2003

development and land uses, and, finally, determine how all of this will be accomplished. The

RMP is a continuation of Reclamation’s authorities, policies, and guidelines developed through

public input. The planning life of an RMP is typically 10 years; however, an RMP may be

modified by an amendment or totally revised, if warranted, before the end of the 10-year

planning period.

The guidelines in this document are intended to introduce resource specialists to the basic

concepts and principles that can be used in a planning effort, such as:

P The need for public involvement

P Proper evaluation of public input

P The collection of appropriate resource technical information

P Proper analysis of the technical information

P The need for implementation schedules

P The need for monitoring and updating the information contained in the RMP

On a practical level, RMPs can assist in the preparation of annual Work Plans that reflect sound

management decisions. In addition, an RMP can achieve the following

objectives:

P Incorporate other Reclamation planning and agreement information about a management

area in a single document

P Define responsibilities, authorities, and rights in a management area

P Develop implementation schedules and provide the means to perform program evaluations

P Provide managers with a road map to wise resource use by establishing sound practices to

manage and protect resources, allocate resources, and identify appropriate uses of lands

P Allow public involvement to assist in making resource management decisions

P Justify budgets, because land management decisions have gone through the planning

process, which included analyses of the impacts of the proposed action and public

involvement
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Chapter I – Overview

February 2003

P Resolve a large part of the internal and external issues over land use matters that occur in

the absence of, or the disregard for, RMPs

P Establish use levels that protect resources and Project purposes and are compatible with

the needs of the public, if possible

P Identify appropriate types of land use development that may be permitted and provide for

the orderly, coordinated development of facilities in a given area

Organization of the Resource Management Plan Guidebook

The intent of chapter I is to present some of the basic concepts, principles, authorizations, and

guidance dealing with the preparation of RMPs, and it includes a discussion of their value to

managers. The remainder of this guidebook contains practical guidance on how to prepare RMPs

that optimize responsible resource management and that foster wise decisions. Chapter II

describes the administrative details that should be followed to successfully initiate the RMP

process and to make the process run smoothly. Chapter III documents the steps in the resource

management planning process and describes the different activities that need to be accomplished

within each planning step. Chapter III also describes the NEPA process and how it relates to

resource management planning. Chapter IV describes a typical RMP outline by chapter and

discusses the level of content within each chapter. Chapter V discusses other considerations, such

as graphics and geographic information system (GIS) products, that could be considered for

inclusion in an RMP. Attachments are included in this guidebook to provide supplemental

guidance for successful completion of RMPs. These attachments are provided at the end of the

document in the order they are referenced. 

Where appropriate, excerpts from the Resource Management Plan Guidelines (March 1991) of

Reclamation’s Great Plains Region, and excerpts from the Mid-Pacific Region’s A Guide for the

Preparation of Resource Management Plans (December 1988), have been included in this

guidebook. In addition, reference material associated with resource planning efforts of other

Federal entities has been used where appropriate.
Chapter

II AdministrationAdministration

Introduction

Preparing RMPs for lands under Reclamation’s jurisdiction can be a time-consuming activity;

therefore, RMPs should be scheduled on a priority basis for management areas that would

benefit from the completion of an RMP. As a result, many areas will need to be managed for

extended periods of time without the benefit of an RMP. In these instances, area office

personnel should use the many different laws, E.O.s, rules, regulations, policies, directives,

and standards concerning Federal lands and activities to guide them in their management

activities. Case studies of previous successful land management decisions

and procedures can be used for guidance. Advice and assistance are also available from

regional, Commissioner’s, and TSC offices.

Once a decision has been made, and funding and staff resources are assigned to prepare

an RMP, certain procedures or actions should be followed that can facilitate completion

of RMPs in a timely and organized manner and within established budgets. This chapter

describes some of the major administrative actions that should be accomplished by

Reclamation and others in preparing and implementing an RMP.

Responsibility

Area Managers and their staff are responsible for conducting resource management planning,

as needed, for the acquired, withdrawn, and leased lands under their jurisdiction. However,

depending on the terms and conditions of the management agreement, Reclamation may

choose to delegate this responsibility to a managing partner. If the responsibility is delegated,

Reclamation should ensure that the managing partner(s) follow the guidance provided in this

guidebook and that Project purposes, Federal lands, and natural and cultural resources are

protected. The initial phase of this planning is to determine which areas need RMPs and to

develop a priority list to establish the order in which these plans will be prepared (see the

following section, “2. Process for Prioritizing Management Areas”). Once it is decided to

prepare an RMP for an area, it is the job of the area office to actually prepare the plan or to

ensure it is prepared by another organizational level within Reclamation, such as the regional

office or the TSC, or by a managing partner or contract with a private consulting firm.

Regardless of which entity has primary responsibility, it is important that resource

management planning be done in cooperation with all entities and groups that have an interest

in the area or that have something to contribute to the planning effort.
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The area offices are responsible for scheduling, budgeting, preparing, and implementing

RMPs. Reclamation’s goal is to provide some consistency in resource management planning

and document preparation on a Reclamation-wide basis. Therefore, it is suggested that

Reclamation offices follow the guidance provided in this guidebook.

Phase I Preliminary Resource Management Plan

Administrative Actions

Several administrative actions may have to be accomplished before an area office can initiate

the actual preparation of an RMP. Some of the major preliminary administrative actions that

may be necessary are defining management areas, prioritizing management areas, budget

planning, determining the level of NEPA compliance, preparing a statement of work (SOW),

contract award, Office of Management and Budget (OMB) clearance for use of public surveys

for data collection, and establishing an interdisciplinary (ID) team.

1. Defining Management Areas

Individual RMPs should be developed for facilities/lands that are considered as individual

management areas. There are no fixed guidelines on what may comprise a management area,

and management areas within a Project may vary in size and complexity. These lands may

encompass an entire Project, but usually consist of only a part or segment of the Project. 

Some examples of areas which could be viewed as a management area are:

P Entire reservoirs and surrounding areas

P Geomorphological boundaries such as drainage basins

P Wildlife or other mitigation areas that may be separated from other Reclamation lands

P Certain reaches of canals, drainages, and other irrigation works

P Specific areas within Reclamation’s jurisdictional boundaries or specific areas assigned

to a managing partner

P Areas that have similar management problems or concerns
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1 MATS - PC, Multi-Attribute Tradeoff System, Version 2.02, Personal Computer Version, January 1994, is a user-friendly

program developed by Reclamation to assist decisionmakers in evaluating alternatives. For the purposes of this document,

MATS - PC can assist Reclamation personnel in prioritizing the completion of

RMPs by comparing certain selected evaluation criteria/factors.

2. Process for Prioritizing Management Areas

When prioritizing management areas, the area generally identified as having the greatest

impact on the public or environmental resources should be given the highest consideration.

Because staffing and budgets are limited, it is recognized that emphasis will be given to those

areas that could benefit the most from a completed RMP. As stated earlier, it is

the responsibility of each area office to complete RMPs; therefore, it should be their

responsibility to prioritize and fund the RMPs.

In October 1993, a Reclamation-wide RMP team identified key factors to evaluate the

need for an RMP and submitted their recommendations to the Assistant Commissioner –

Resources Management. The factors were then developed further into defined criteria used to

evaluate the management areas needing RMPs. These criteria include:

P Cost-share opportunities for RMP preparation

P Public use/user conflicts

P Economic benefits

P Management responsibilities

P Cultural and natural resource protection

P Existing land uses

The Multi-Attribute Tradeoff System (MATS)1 was then used by applying the evaluation

criteria to each proposed management area and used to compare each area on a priority basis

(see attachment B for an example of the priority system used by the RMP team in prioritizing

certain management areas and for the MATS - PC user manual and computer disk of the

program). Each office may use this system, or a similar system, to help prioritize

management areas to be covered under an RMP. Attachment C includes a diagrammatic sketch of a prioritization process that was submitted to all regions via memorandum

dated May 6, 1988, from the Assistant Commissioner – Resources Management. It is 
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important to note that considerable time and effort should be used to collect similar

information for each management area. The evaluation criteria can then be used objectively

to prioritize the areas to be covered in an RMP.

3. Budgeting

Since Area Managers are responsible for the preparation of RMPs, all budget requests should

be initiated at the area office level following the same procedures that are used for budgeting

other activities. Every region budgets somewhat differently, but, generally, the area offices

prepare budget estimates and justifications and submit them to the regional office for

consolidation. Reclamation should always seek alternative funding sources, such as cost

sharing with managing partners.

Guidance on budgeting can be found in the “Administrative Series - Budget Management”

section of the Reclamation Manual and in the Program and Budget Handbook. Funds for

preparing RMPs should be budgeted under “A20 Level 2 (Activity): Land Management and

Development.” More information on budgeting can be found on Reclamation’s intranet site

at <http://www.usbr.gov/recman/index.htm>.

Remember that the size of the area is not the only factor that may influence the cost of

an RMP and that the cost of preparing an RMP is not directly proportional to the size

(e.g., the cost for preparing an RMP for a small reservoir may be just as much as for a large

reservoir). Budget estimates should be prepared early in the process so that adequate funding

can be requested in advance and over an extended period of time (approximately

2 years). In addition to size, some items that may influence the cost of completing an RMP

are:

P Availability or absence of data which might be necessary to evaluate potential actions

needed to make reasonable management decisions

P Public use of the area (e.g., user conflicts attributable to the use of the management

area by the public or other land uses such as the number of licenses, leases, and

permits issued within a management area)

P Level of NEPA compliance required for the Federal action of preparing and

implementing an RMP (e.g., categorical exclusion [CE], environmental assessment

[EA], or environmental impact statement [EIS])

P Number of internal and external issues identified in pre-scoping
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2

 Tiering is defined as “The coverage of general matters in a broad National Environmental Policy Act document with

subsequent narrowly focused documents; it helps to eliminate repetitive discussions and allows the site-specific documents

to focus on specific issues.”

3

 Departmental Exclusion 1.10 addresses policies or directives that are administrative or that are too broad,

speculative, or conjectural for meaningful analysis.

4

 Reclamation Exclusion 9.4C4 addresses approval on land management plans when implementation will only result in

minor construction activities and minor changes in operation and maintenance activities.

P Location (e.g., urban, rural, or remote)

P Types of natural and cultural resources existing within the management area

P Level of consultation needed with concerned State and Federal entities such as the

FWS and State Historic Preservation Officer (SHPO), Tribal/National governments,

and private organizations such as Trout Unlimited, Audubon Society, and Ducks

Unlimited

P Types of mapping or inventories needed (GIS or AutoCad map preparation, wetland

or cultural resource inventories, etc.)

4. NEPA Compliance

The level of NEPA compliance necessary to complete an RMP will affect budgets and

schedules; therefore, the area office should determine the likely level of NEPA compliance

necessary and implement the appropriate NEPA activity early in the RMP process. 

Depending on available funding and resource program needs, area offices will prepare either a

programmatic or site-specific RMP and NEPA compliance document. (See NEPA Handbook

for guidance on programmatic NEPA compliance.) If a programmatic RMP and associated

NEPA compliance document is prepared, site-specific NEPA will have to be accomplished

before the initiation of any ground-disturbing activities. When site-specific NEPA is initiated

for actions identified in the RMP, Reclamation can tier2 off the existing RMP NEPA

document or other existing NEPA documents that may have a bearing on the management

area and its resources. Potential NEPA compliance levels include:

P Categorical exclusion (DOI, Departmental Exclusion 1.10,3 or Reclamation Exclusion

9.4C44)

P Environmental assessment

P Environmental impact statement
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The area office should use Reclamation’s NEPA Handbook to coordinate the NEPA process

with the RMP process. The NEPA Handbook provides detailed guidance on the NEPA

process and can be accessed at <http://www.usbr.gov/nepa>, and the discussion of NEPA in

chapter III provides additional information.

5. Preparing a Statement of Work

The area office should prepare a SOW for the preparation of an RMP. It is best to prepare a

SOW prior to the year funding is programmed. This effort will facilitate the award of a

contract as funds become available and ensures obligations and work will be substantially

completed in the designated timeframe. The SOW is intended to provide detailed guidance to

the Reclamation personnel or private contractors who are preparing the RMP for the initiating

office. The SOW should be prepared under the direction of the team leader or other

designated person. Two examples of a SOW are included in attachment D. The main

components of a SOW should include, but are not limited to:

P A background section describing the management area, responsible office, identified

issues, and tasks to be performed.

P An overview section describing, in general terms, the products—such as a Public

Involvement Plan (PIP), RMP, NEPA document, Work Plan, and schedule—that are

to be completed. This section may also include a description of the relationship of the

RMP to the PIP, as well as the level of consultation and coordination needed with the

Contracting Officers Technical Representative if the RMP is being contracted, or with

the team leader if the RMP is to be completed in-house.

P A section that details both the general and specific tasks required of the contractor

or Reclamation personnel preparing the RMP and NEPA document (i.e., what is

contained in each chapter of the RMP and NEPA document), including a description

of the resource management area (physical boundaries), data collection needs, and

others. This section should also provide specific details on how to conduct public

involvement activities (conduct public meetings, open houses, and public hearings;

prepare scoping notices, public newsletters and updates; and process public

comments).

P Government or initiating office responsibilities, including a list of responsibilities that

the Government or initiating office will have during the process and what, if any,

deliverables are to be given to the contractor or Reclamation personnel who are

preparing the RMP and NEPA document.
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P Deliverables and reporting responsibilities of the parties who are preparing the RMP

and NEPA document. This could include, but is not limited to, progress reports, draft

documents, maps, data, photographs, review procedures, and others.

P Attachments that are part of the SOW to help guide the contractor or Reclamation

personnel in the successful completion of the RMP and NEPA document. Attachments could include this guidebook, a sample outline of a typical RMP, a NEPA

document format, a list of resources to be discussed, a list of known interested parties,

and others.

The SOW should identify the planning effort in sufficient detail so that resource require-ments

and costs can be estimated. Therefore, the completed SOW should enable the proposed

preparers of the RMP and associated NEPA document to submit the following items to the

responsible office for evaluation:

P Staff-day cost estimate and breakdown of tasks by discipline

P Work Plan

P PIP

P Schedule

P Cost estimate, including travel costs

P Personnel assignments

P Deliverables

P Communication responsibilities

In addition to the SOW, the area office under the direction of the team leader should prepare a

detailed Government estimate for the costs outlined in the SOW. This estimate is compared

to the proposal submitted by the entity requested to prepare the RMP.

Estimates for additional services and modifications to contracts or agreements may be

necessary as the planning process is carried out. It is very important to work with contracting

staff to ensure that procurement requirements are met as these changes

occur.
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6. Contract Award 

If managed correctly, contracting with the private sector or another Reclamation organization

to have RMPs prepared, rather than doing them at the area office, can be a successful method

of completing the RMP and NEPA document. Since the TSC has the capability to produce

RMPs and associated NEPA documents, the area office should first attempt to contract with

the TSC for preparation of RMPs. A SOW should be supplied to the TSC, attention: 

Resources Management and Planning Group, Denver Technical Service Center. The SOW

transmitted to the TSC should be similar in scope to a SOW that would be provided to a

private consultant and as outlined below. The TSC will then supply the requesting office with

a proposal outlining the items noted in “5. Preparing a Statement of Work.” If the proposal is

accepted by the area office, a service agreement between the area office and TSC will have to

be completed and a date to commence work negotiated.

If a private consultant is used, it is very important to follow the proper acquisition procedures,

as outlined in the Federal Acquisitions Regulations, and to coordinate the effort with the

procurement office. An acquisition strategy should be jointly developed and finalized by the

area office and the procurement office before obtaining a contractor. Before an attempt is

made to procure contract services through the competitive process, a review should be

conducted to determine if an Indefinite Quantity Delivery Contract might already be in place

that could be used to provide the needed services.

When using a private contractor, it is essential that the contractor prepare the RMP based on

the direction provided in this guidebook and on Reclamation’s goals, objectives, and

perspectives rather than those of other entities or segments of the public for whom the

contractor has previously worked.

7. Office of Management and Budget Clearance

In some instances, it may be necessary to collect public information to establish baseline

recreation, economic, or other resource information. Any questionnaire(s) given to the

public to solicit such information requires the approval of the OMB. The questionnaire

package sent to the OMB elicits a time-consuming and rather comprehensive process;

therefore, it is necessary to start the OMB approval process in the early stages of the RMP

planning process. (It takes the OMB approximately 6 months to approve a questionnaire that

can be distributed to the public.) Checking with Reclamation’s Resource Management and

Planning Group, Denver Technical Service Center, will reveal whether there is an existing

OMB-approved survey questionnaire that would meet the needs of the area office collecting

such information.
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OMB, 5 CFR, Parts 1320.3(h)(4) and (8) discuss exemptions to OMB formal approval related

to public involvement activities. This CFR, along with other CFRs, can be accessed at

<http://www.access.gpo/nara/cfr/>. Item 4 allows Federal entities to obtain general

information from the public as long as personal information about the commentor is not 

asked, other than self identification (i.e., name and address for the RMP mailing list).

Item 8 is the exemption for any public comments associated with public meetings or hearings.

8. Establishing a Team Leader and Interdisciplinary Team

Preparation of an RMP requires an interdisciplinary approach coordinated by a team leader or

other designated person. The team leader oversees an RMP process that is not a straight-line

process with a clearly identifiable beginning and ending point; it is more of an interactive

process with a number of steps and stages that may be repeated until sufficient data and

public input are gathered to make a decision. This individual not only manages the team

members, but oversees the public involvement program and is the public contact for matters

concerning the RMP. With assistance from other staff, the team leader must decide what type

of and how much public involvement is required during the RMP process.

The composition of an ID team is critical in determining the success of the planning effort.

The team leader oversees administrative, technical, and plan documentation by using the

expertise of other relevant staff, such as engineers, reports writers, biologists, hydrologists,

geologists, and economists, and procurement, natural resource, cultural resource,

environmental, public involvement, recreation, and realty specialists. The team leader should

decide which disciplines are necessary and then guide and direct the process to completion. 

The composition depends on the nature of the planning effort.

An ID team is needed to effectively respond to the complex needs of customers and

organizations and to better identify potential impacts to the existing environment. While the

mix of disciplines required for a team may vary from RMP to RMP, there are some generic

characteristics of good team members. Good team members should:

P Possess the technical expertise to meet study needs

P Have the temperament to fit in with other team members, the team leader, and the

public

P Work within the funding limits, study schedule, or other Work Plan requirements
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5

 The responsible official must recognize the government-to-government relationship between American Indian

Tribal/National governments and the Federal Government and must consult with and invite Tribes/ native Nations to

participate throughout the planning process as outlined in E.O. 13175, “Consultation and Coordination with Indian

Tribal Governments” (November 6, 2000). The Worldwide Web address is <http://ceq.eh.doe.gov/nepa/regs/

eos/eo13175.html>.

A high degree of communication and informal coordination among all team members and the

team leader should occur throughout the planning process.

The team leader and ID team must also recognize the role of Tribal/National5 governments,

other Federal agencies, and State and local governments as regulators, land managers, and

representatives of State constituencies, local communities, and other entities interested in or

affected by uses of Reclamation lands and resources. Accordingly, opportunities must be

provided for involvement of State, local, and Tribal/National governments in the planning

process, including opportunities to participate in the identification of topics of general interest

or concern relating to the plan area, and to:

P Participate in the formulation of proposed actions that may affect or influence

programs

P Contribute to the streamlined resolution of any inconsistencies among Federal entity

policies, RMPs, or programs

P Develop, where appropriate and practicable, joint RMPs

P Comment on draft documents

The team leader should ensure that appropriate information is made available and that no one,

including persons with diverse opinions and values, is deliberately excluded or denied

participation in the resource management planning process. Every effort should be made to

reach a diverse cross-section of the general public, not just current land users or other

government entities.

The primary duties and responsibilities of the team leader are to:

P Ensure team communication, define management roles and responsibilities, and

develop management study plans

P Clarify objectives and identify problems and needs

P Locate resource staff needs from Reclamation or contractors
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P Schedule and prioritize work tasks, identify issues that will affect the prioritization of

tasks, monitor performance, and ensure quality control of documents

P Evaluate benefits versus costs, develop cost estimates and service agreements, and

track budgets and expenditures

P Coordinate public involvement activities and attend and lead public meetings and open

houses

P Schedule and lead an adequate number of team meetings and resolve conflicts

between team members, if necessary

P Periodically brief area and regional management on the progress of the RMP, issues,

and alternatives

The primary duties and responsibilities of the ID team are to:

P Assist in scoping for environmental compliance

P Inventory and evaluate resource needs

P Assist in formulating and analyzing alternatives and selecting preferred alternative(s)

P Assist in preparing documents for decisionmakers

P Follow the Work Plan

P Identify mitigation measures, monitoring efforts, and program standards

P Attend public meetings when necessary

P Work as a team by attending ID team meetings and communicating with team

members throughout the planning process

Phase II Administrative Actions Required During the Preparation

of a Resource Management Plan

Several administrative actions should be followed once the RMP process has been initiated,

whether the RMP is being prepared by the area office or has been awarded to a contractor. 

Several of the administrative actions that need to be completed during this phase of the 
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RMP process and discussed below include activities required by legislation. Because these

actions directly affect the length of time needed to complete an RMP, they should be

considered when establishing a time line for completion.

In addition, some of the administrative actions listed in this section are also considered to be

NEPA compliance actions that would routinely be addressed as part of the NEPA process. 

These particular administrative actions are mentioned here rather than the NEPA section in

chapter III to highlight their importance to the planning process (i.e., that consultation and

coordination efforts have to be initiated early in the planning process so that pertinent

information can be used by Reclamation in establishing reasonable RMP management actions

for a variety of natural and cultural resources).

The following are some of the possible actions to be accomplished once the RMP has been

initiated: preparation of a Work Plan and schedule; preparation of a PIP; Fish and Wildlife

Coordination Act (FWCA), Migratory Bird Treaty Act, and Endangered Species Act (ESA)

consultations; consultation for the National Historic Preservation Act (NHPA), Indian

Trust Assets (ITAs), Indian sacred sites, and Native American Graves Protection and

Repatriation Act (NAGPRA); FACA initiation and documentation, if necessary; preparation

and maintenance of an active mailing list; preparation of public notices and newsletters;

printing of team and administrative drafts; and preparation of final RMP and NEPA

documents.

1. Preparation of Work Plans and Schedule

Work Plans are needed to get a clear picture of the scope, duration, and purpose of a

proposed RMP. Work Plans address the approach and limits of the RMP and provide

direction. Well-prepared Work Plans result in a more efficient use of time and effort in the

RMP process. It should be noted that as information is gathered, conditions and issues may

change the direction of the RMP, and when this occurs, Work Plans should be revisited

and updated as needed, and contracts or service agreements may need to be modified. 

Attachment E provides a list of questions to consider in the preparation of a Work Plan (see

attachment F for an example of a Work Plan [Upper Colorado Region]).

A schedule should be prepared that allows sufficient time to complete the actions that may be

identified in the Work Plan. The schedule should allow completion of the RMP and

associated NEPA document within the timeframe in which funding is available. If the

schedule changes due to unforeseen circumstances, the Work Plan should be modified

accordingly, and additional funding may have to be secured. See attachment G for an

example of a typical activity schedule (Lower Colorado Region).
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2. Preparation of a Public Involvement Plan

The purpose of the PIP is to ensure that whenever Reclamation actions may significantly

affect individuals or groups, Reclamation will systematically provide opportunities for

affected individuals, groups, and communities to be informed about the issues; as

appropriate, to participate in the definition of the problem, objectives, and possible solutions;

and to have their views documented and considered in the decisionmaking processes. The

goals of the PIP are to ensure that programs respond to public needs and concerns and that

they provide meaningful opportunities for the public to participate in and provide input to

decisionmaking processes. This type of public involvement improves opportunities for

developing successful agreements and solutions, minimizes litigation and disputes, invites

input from all stakeholders, and provides credibility and accountability to the process. See

attachment H for an example of a PIP that was prepared for an RMP in New Mexico.

Additional information regarding public involvement for Reclamation activities can be found

in the Reclamation Manual. See Reclamation Manual CMP PO3 and CMP 04-01

(<http://www.usbr.gov/recman/>). DM 301, chapter II, also contains information on public

involvement. Also see attachment I for The Public Meeting Survival Guide prepared by the

DOI, FWS, and the Oregon Department of Fish and Wildlife. This survival guide outlines

procedures and strategies for conducting public meetings.

3. Endangered Species Act, Fish and Wildlife Coordination Act, and Migratory Bird

Treaty Act Consultations

FWS/National Oceanic and Atmospheric Administration (NOAA) Fisheries should

be consulted early in the planning process (pursuant to section 7 of the ESA of 1973,

P.L. 93-205, as amended). Once the action area is determined, a list should be requested from

FWS/NOAA Fisheries to determine if the area covered by the RMP includes federally listed

proposed endangered and threatened species, candidate species, species of concern, or critical

habitat. This list will be the basis of the biological assessment (BA) or evaluation by the

action agency. This BA will evaluate the potential effects of the action on the listed species

and critical habitat provided in the list. The BA should reach a conclusion of “no affect,”

“may affect but not likely to adversely affect,” or “likely to adverse affect.” If a conclusion of

“no affect” is reached for all listed and proposed species and critical habitat, no further action

is required. If a conclusion of “may affect but not likely to adversely affect” is reached for

any listed or proposed species and/or critical habitats, the analysis must be forwarded to

FWS/NOAA Fisheries for their concurrence in the conclusion. If a conclusion of “likely to

adversely affect” is reached for any listed species or critical habitat, formal consultation must

be initiated with FWS/NOAA Fisheries. Formal consultation is concluded within 135 days
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Resource Management Plan Guidebook

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(unless an extension is agreed upon) with the delivery of a complete biological opinion (BO). 

The BO provides the FWS/NOAA Fisheries with an opinion of whether the Federal action is

likely to jeopardize the continued existence of listed species or result in the destruction or

adverse modification of critical habitat. The BO may also provide reasonable and prudent

alternatives to avoid jeopardy and reasonable and prudent measures to reduce take.

The FWCA requires coordination with the FWS when Reclamation is developing water

resource projects that modify water of the United States. By separate memo, Reclamation

typically provides funding for this coordination. This type of project development should

never be an issue in the development or revision of RMPs. However, the FWCA process can

still be used (as can the NEPA process) to ensure close coordination with FWS in addressing

wildlife mitigation issues. Once the basic action is defined (at about the same point in

Reclamation’s process when the species list is requested from FWS/NOAA Fisheries), a

Reclamation office may begin to coordinate with FWS under the provisions

of the FWCA. The outcome, which should occur before the final NEPA document is

completed, is a report from FWS to Reclamation that recommends mitigation to minimize

effects on fish and wildlife resources. When a new water development project is involved and

Reclamation does not accept certain FWS mitigation recommendations, Reclamation

is required to explain why such mitigation recommendations were not accepted and

implemented. When a new water development project is not involved (i.e., most of the time

for RMPs), Reclamation should document their response to these recommendations. Be

aware that FWS staff often view the scope of the FWCA as including any effect on waters of

the United States, and a clear definition of how it applies to a particular RMP should be

determined jointly with FWS early in the process. Also, FWCA staff and ESA staff within

FWS/NOAA Fisheries are generally varied and, therefore, different recommendations may be

received.

Unlike the ESA or the FWCA, there is no established procedure for coordination under the

Migratory Bird Treaty Act. The act itself prohibits the take (unlike the ESA, “take” means

actual harm to individuals, not harm to habitat) of migratory birds unless a permit is obtained. 

This act has been broadly accepted as applying to intentional take; however, it has recently

been applied to unintentional take as well. There is an established process for obtaining a

permit for intentional take. When unintentional take is likely, it may be useful, as part of

either the FWCA consultation or NEPA process, to identify mitigation to minimize that take.

4. National Historic Preservation Act Consultation

Pursuant to section 106 of the NHPA, consultation with appropriate American Indian (Indian)

Tribes/native Nations, the SHPO, and the interested public must be initiated to determine the

Area of Potential Effect and the existence of archeological sites, traditional cultural properties

(TCPs), and/or historic buildings, structures, and objects within the study area to be covered
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under the RMP (see below for discussion on Indian sacred sites). It is Reclamation’s policy

to avoid impacts to cultural resources whenever feasible. If an action is planned that could

adversely affect significant cultural resources (including archaeological sites, TCPs, and

historic buildings, structures, or objects), Reclamation will investigate options to

avoid that site. If actions contemplated in the RMP were to have an adverse effect on

cultural resources or TCPs, then Reclamation would consult further with the SHPO, Indian

Tribes/native Nations, and others, as appropriate, to determine the mitigation measures that

may be necessary. Any consultation efforts related to section 106 of NHPA should be

conducted by qualified Reclamation personnel (not a contractor). Figure II-1 depicts the steps

in the section 106 process. Section 106 consultation may also involve the Advisory Council

on Historic Preservation. For further information, see <http://intra.usbr.gov/>.

5. Indian Trust Assets Consultation

Early in the planning process, consultation should be initiated with appropriate Indian

Tribes/Nations and the Bureau of Indian Affairs (BIA) concerning potential ITAs. The initial

contact with the Indian Tribes/Nations in the immediate area should be government-togovernment in a face-to-face meeting, if possible. Coordination should also occur with

Reclamation's Native American Affairs Office and the BIA to identify other Indian Tribes/

Nations outside the immediate area that may be interested or affected.

ITAs are legal interests in property held in trust by the United States for Indian Tribes/ Nations

and individual Indians. Examples of ITAs are lands, minerals, hunting and fishing rights, and

water rights. The United States has a trust responsibility to protect and maintain rights

reserved by or granted to Indian Tribes/Nations or individual Indians by treaties, statutes, and

E.O.s, and these rights are sometimes further interpreted through court decisions and

regulations. This trust responsibility requires Reclamation to take all actions reasonably

necessary to protect ITAs in consultation with local Tribes/Nations (see Reclamation’s NEPA

Handbook for further guidance on ITAs) and Reclamation’s policy of July 2, 1993. This

consultation effort should be documented in the RMP and NEPA document.

It should be noted that consultation efforts to identify ITAs is separate and distinct from

section 106 and Indian sacred sites consultation. Therefore, close coordination with the

appropriate Native Affairs Office and cultural resource ID team members is recommended

when initiating ITA consultation. Any consultation efforts related to ITAs should be

conducted by qualified Reclamation personnel (not a contractor).
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Figure II-1.—Section 106 regulations flowchart.
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Chapter II – Administration

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Reclamation should establish a government-to-government relationship with appropriate

Indian Tribes/Nations and consult on the presence of Indian sacred sites within the Area of

Potential Effect. The initial meeting should be face-to-face, if possible. If no response

is received from the Indian Tribes/Nations, Reclamation will contact Indian Tribes/Nations

before implementation of any RMP management actions that could affect Indian sacred sites

to determine if they are aware of the presence of any sacred sites in specific impact areas.

E.O. 13007, Indian Sacred Sites (May 24, 1996), directs Executive branch agencies to

accommodate access to, and ceremonial use of, Indian sacred sites by Indian religious

practitioners and to avoid adversely affecting the physical integrity of such sacred sites on

Federal lands. The agencies are further directed to ensure reasonable notice is provided of

proposed land actions or policies that may restrict future access to, or ceremonial use of, or

adversely affect the physical integrity of, sacred sites. The E.O. defines a sacred site as a

“specific, discrete, narrowly delineated location on Federal land that is identified by an Indian

Tribe, or Indian individual determined to be an appropriately authoritative representative of an

Indian religion, as sacred by virtue of its established religious significance to, or ceremonial

use by, an Indian religion.” Any consultation efforts related to Indian sacred sites should be

conducted by qualified Reclamation personnel (not a contractor). The Executive Order for

Indian Sacred Sites (E.O. 13007) can be found in Reclamation's NEPA Handbook. Additional

information can be obtained at <http://intra.usbr.gov/> by clicking on "Cultural Resources".

7. Native American Graves Protection and Repatriation Act

The NAGPRA establishes ownership of Native American human remains and associated

burial items with individual Indians who can establish lineage to the remains or items, or

Indian Tribes/Nations that can establish cultural affiliation with the remains or items. If,

during the execution of an RMP, Native American human remains are discovered,

consultation procedures established by Reclamation Directives and Standards LND 07-01

shall be followed. Any consultation efforts related to NAGPRA should be conducted by

qualified Reclamation personnel (not a contractor).

8. Federal Advisory Committee Act Initiation and Documentation

As stated in chapter I, an advisory committee may be used to assist in decisionmaking on

particular actions that may be of general public interest or concern. FACA provides the

public the opportunity to render advice and assistance to the Federal Government through

advisory committees. The responsibilities of the advisory committees are to provide advice
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that is relevant, objective, and open to the public; act promptly to accomplish their work; and

comply with reasonable cost controls and recordkeeping requirements. It should be noted

that this type of advisory group is typically not necessary during the RMP planning process. 

It is recommended that advisory groups not be used and that other types of working groups

consisting of concerned entities or individuals be used to solicit input into the RMP planning

process.

If found to be necessary, advisory committees should be chartered early in the process. 

When such committees are used, FACA should be followed. Advisory committees should be

officially terminated when they are no longer fulfilling the purposes for which they were

established. All FACA actions (chartering, re-chartering, and nominations of members, etc.)

must be coordinated through Reclamation’s Committee Management Officer. (Note: The

Worldwide Web address for FACA is <http://www.epa.gov/ ttn/faca>.)

9. Preparation and Maintenance of an Active Mailing List

An active and up-to-date mailing list is essential for dissemination of information and for

public involvement. The mailing list established during the RMP process should be

maintained and updated throughout the life of the plan. This list should be used to provide

interested parties with copies of the RMP and modifications, information related to pro-posed

amendments or revisions, and information related to NEPA compliance, as they desire (the

list should include an indication of what, if any, specific documents or information a listed

entity wants to receive). An active, up-to-date mailing list is essential for public involvement

and dissemination of information in all phases of an RMP and associated NEPA compliance.

A preliminary mailing list should be created early in the process and should include concerned

local, State, and Federal entities; Federal and State legislators; Tribal/National governments;

and special interest groups and concerned individuals, including congressional delegation(s)

and State legislators. Area and/or regional offices usually have a master mailing list that can

serve as a basis for creating the mailing list to be used during the preparation of the RMP. The

Customer Information System (CIS) for respective regions should be used to the extent

possible (guidance on the CIS can be obtained by accessing <http://intra.do.usbr. gov/CIS/>).

As scoping and public involvement are conducted, additional names and organizations should

be added and updated, as appropriate. Existing addresses not already in the CIS should be

added, as well as new addresses that become available during the public involvement process. 

Such a database can facilitate the preparation of mailing labels for mailing notices, newsletters,

and RMP updates, and for printing a comprehensive mailing list to be included in the NEPA

document. Since some States prefer to coordinate their comments through State

clearinghouses, it may be desirable to include addresses for clearinghouses, as appropriate.
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10. Preparation of Public Notices, Newsletters, or Updates

Public notices and/or newsletters should be prepared and sent to newspapers and known

concerned entities and individuals to announce the initiation of the RMP process, public open

houses that may be scheduled, availability of draft documents for review by the public, and

location/dates of where and when copies of the final RMP and NEPA document can be

obtained. Consideration should be given to using the Federal Register as a mechanism to

solicit comments from the public. However, announcements in the Federal Register alone

will not adequately reach the general public. (See attachment J for a series of newsletters

published for the Heron Reservoir Resource Management Plan in New Mexico.)

To keep the public informed throughout the planning process, updates in the form of public

notices or newsletters should be made available on a periodic basis. All public involvement

activities should be coordinated with the regional public affairs office. Area Managers, for the

most part, have approval authority for fact sheets, flyers, site-specific brochures, and

newsletters. Regardless of who has final approval, Reclamation personnel should use form 7-

2525 for initiating a publication. See attachment K for a photocopy of form 7-2525.

11. Printing

If the RMP/NEPA document is to be prepared by the area office, it is necessary to arrange for

the printing of the document early in the process. It is important to know how long it will take

to print team, administrative, public review drafts, and the final document(s). Printing can be

accomplished through the United States Government Printing Office (GPO) internally, or

commercially. There may be restrictions on the use of commercial companies for printing if a

GPO source or provider is available in a given area; therefore, each respective office should

check to see if such restrictions are in force.

Phase III Post-Administrative Actions Required After Resource

Management Plan Completion

Once the RMP has been finalized, there are certain administrative actions that must be

accomplished for the RMP to remain an effective tool for administering the lands covered
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under the RMP and for informing the public of changes to the RMP that may be required. 

The post-administrative actions that should be addressed include plan distribution, integration

with other programs, RMP implementation, RMP monitoring, RMP adjustments, and

administrative record maintenance.

1. Plan Distribution

For an RMP to be of value, it must be in the hands of everyone who plays a role in the

management of the area. Therefore, it is important to distribute the plan widely to all

personnel and entities that are involved and to impress upon them that the plan is a

working document and must be readily available for reference in all management actions and

decisions; the plan will do no one any good if it is placed on a shelf and forgotten. It is also

important for the office distributing the plan to keep good records of who received it so

revisions and updates can be easily distributed to everyone who has a copy of the original

RMP/NEPA document.

An RMP should be used by anyone involved in the management or administration of 

Reclamation lands and resources—Area Managers; managing partners; supervisors; lands, 

recreation, environmental, engineering, and operations staff; water user organizations; wildlife

and park officials; maintenance staff; politicians at Federal, State, and local levels; and others.

Area offices may consider producing electronic versions of draft documents to place on the

internet for review and comment or to distribute by CD-ROM.

2. Integration with Other Programs

A well-prepared RMP can provide valuable direction and guidance for implementing

programs and for monitoring progress. Reviewing the information regarding proposed

management actions in an RMP before proceeding with any actions contemplated by the area

office will ensure that the RMP is being followed and that informed decisions on the future of

the area are made. RMPs should be reviewed before developing, revising, or updating

programs; performing studies; collecting information and/or data for Reclamation

areas; or preparing any development plans. Lands and resources should be monitored to

make sure the proposed work is in harmony with the RMP and does not duplicate previous

efforts. The RMP will help determine the scope and the extent of proposed work to achieve

the desired future condition within the management area.

Integrating the area offices’ activities should be an easy task since the RMP identifies future

management direction. Office Work Plans and programs should be developed and planned
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around the RMP to achieve the desired future condition of the management area. The RMP

helps establish the basis for studies, monitoring, and development, making it a valuable tool

for identifying work that needs to be accomplished. It provides management with detailed

documentation for preparation of Work Plans and budgets for achieving an identified longterm objective.

3. Resource Management Plan Implementation 

RMPs should outline responsibilities for implementation. When the management area

covered by the RMP is solely managed by Reclamation, then Reclamation is responsible

for implementing the actions outlined in the RMP. In most instances, however, the area will

be managed cooperatively by Reclamation and another Federal entity, such as the U.S. Forest

Service (FS) or a State or local government entity. When an area is cooperatively managed,

implementation of the management actions in the RMP will be the responsibility of all

involved entities. Work Plans to accomplish the identified actions should be completed by

the responsible entity, and an adequate level of funding should be

requested.

As stated previously under “Phase I Preliminary Resource Management Plan Administrative

Actions, 4. NEPA Compliance,” site-specific NEPA will likely have to be completed and all

environmental and cultural resource clearances will have to be obtained before any grounddisturbing activities are initiated.

Because RMP implementation is a planning process step, see chapter III, “Planning Process

Steps, 9. Implementation and Monitoring of a Resource Management Plan” for further

discussion of RMP implementation.

4. Resource Management Plan Monitoring Program

The monitoring program for the RMP should be able to:

P Track progress in implementing the RMP

P Track the effectiveness of management actions

P Track progress toward a desired condition

P Detect unacceptable effects
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It is suggested that monitoring activities should occur approximately every 3 years; however,

monitoring activities may be reduced when goals and objectives have been reached.

See chapter III, “Planning Process Steps, 9. Implementation and Monitoring of a Resource

Management Plan,” for additional information on RMP monitoring.

5. Resource Management Plan Adjustments

An RMP is a dynamic document and is subject to change. A plan may be modified through

an amendment or total revision. The level of NEPA compliance necessary for an amendment

or revision will be determined by Reclamation.

See chapter III, “Planning Process Steps, 10. Amendments and Revisions to a Resource

Management Plan,” for further discussion on this subject.

6. Administrative Record

The final RMP and supporting documents and data, both paper and digital (e.g., maps,

databases, etc.) are considered official records and should be properly maintained. (Refer to

the Reclamation Manual directives and standards on this subject and the Worldwide

Web address <http://www.usbr.gov/recman/rcd> under “RCD 05-01 Records and

Information Management” for further information.
Chapter

III Planning ProcessPlanning Process

Introduction

The RMP planning process involves several steps that may, at times, repeat until the desired

objective(s) are obtained. It is important that the planning process follows a systematic

approach that allows participants to be kept informed of the status of the RMP process and

keeps them notified when additional input or review is needed. Figure III-1 shows the steps

to be taken in preparing an RMP.

The final RMP should discuss each step in the planning process and how each step relates to

the preceding step. It is important to remember that NEPA compliance activities should be

occurring at the same time that Reclamation is completing the RMP planning process steps.

Level of Planning Effort

An RMP should be prepared in enough detail to direct future development and use of

the resources within the management area while being flexible enough to allow for the

resolution of day-to-day operational problems. The RMP can provide guidance on how to

best plan for, develop, and manage existing and future land uses on Reclamation lands. The

level of detail required will determine what resource disciplines are needed to address the

issues identified through internal review of policies and programs and through external public

scoping. As stated earlier, the team leader, in cooperation with other office personnel, should

identify the disciplines needed, as well as the level of planning effort required.

The level of effort required to develop the RMP will depend on such factors as:

P Resource planning detail

RMPs may include different levels of detail; the greater the level of detail, the 

greater the planning effort necessary. The level of detail may range from a broad

“zoning level” (similar to county or city zoning) to a detailed “specific level.” The

“zoning level” provides management direction on a broad scale, usually identifying

general permitted or excluded uses within an area or zone. The “specific level”

provides more detailed management guidance for uses, resources, or sites within a

zone. The level of detail depends on the size, complexity, and importance of the

management area; the resources present; the issues identified; and management
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Figure III-1.—Planning process flowchart.
III-3 Chapter III – Planning Process

February 2003

needs and concerns. The desired level(s) of detail should be specified in the SOW. 

Preparation of SOWs is described in detail in chapter II, “Phase I Preliminary Resource

Management Plan Administrative Actions, 5. Preparing a Statement of Work.”

Examples:

Zoning level – Identification of relatively large areas for a general use or management

direction (e.g., 500-acre block to be managed for wildlife, with limited dispersed

recreational use, seasonal and area closures to protect wildlife values, and few, if any,

recreational facilities provided).

Specific level – Detailed specification of how a resource, use, or site might be managed

(e.g., maintain 20 acres of potential southwest willow flycatcher habitat with a mature

cottonwood overstory of at least 50 percent crown closure and a shrubby, willowdominated understory with at least 75 percent crown closure; no livestock grazing or

public use allowed within 200 feet of the stand).

P Data requirements

Managing entities other than Reclamation may have already completed RMPs or other

studies with data, in which case data collection requirements could be minimal. In

other cases, sensitive or controversial environmental issues could require collection of

field survey data before or during the planning process. The SOW should identify

anticipated planning data requirements.

Planning Process Steps

The planning effort should be tailored to provide an RMP document sufficiently detailed to

direct future development and use of the resources while being flexible enough to allow for

the resolution of day-to-day operational problems. Following is a brief discussion of each of

the RMP planning process steps shown in figure III-1. The purpose of this section is to show

the preparer of the RMP the importance of each planning step and the appropriate level of

staff specialist involvement. The discussion, for the most part, deals with only the planning

process steps; however, NEPA compliance activities are mentioned for added value and for

clarification purposes since NEPA compliance activities are especially important during the

RMP alternative formulation and examination planning process steps. (A more detailed

description of integrating NEPA into the planning process is contained at the end of this

chapter.) A detailed RMP process outline is included as attachment L. This process outline

can be used as a checklist to ensure that the RMP preparer(s) are following the administrative

process steps as well as the planning steps.
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1. Identification of Issues, Opportunities, and Constraints

An RMP should identify the issues, opportunities, and constraints that have the potential to

influence land management and resource development. Land use planning should focus

on resolving issues that arise over the use and management of Reclamation lands and

associated resources according to Reclamation policies and existing Project authorities. 

(Further guidance can be obtained by accessing Reclamation’s Worldwide Web page and

further under “Reclamation Manuals” or the Project data website (<http://dataweb.usbr.

gov/>) for specific authorities.) To accurately identify the issues, opportunities, and

constraints, a public involvement and internal scoping process should be initiated. This

is usually accomplished by a formal public process as described in the NEPA regulations

(refer to chapter II, “Phase II Administrative Actions Required During the Preparation of a

Resource Management Plan, 2. Preparation of a Public Involvement Plan,” for additional

information).

Issues, opportunities, and constraints should also be identified and discussed within the RMP

to assist in developing the goals and objectives that are eventually established by the team. If

possible, the issues, opportunities, and constraints should be identified for each resource in

the study area. This will also help the ID team in finalizing the goals and objectives of the

RMP. See attachment M, part I, for examples of goals and objectives formulated in

response to identified issues for preparation of the Canyon Ferry Reservoir RMP/EA

(Montana Area Office, Great Plains Region) and attachment M, part II, for examples of

goals and objectives formulated in response to identified issues for preparation of the Agate

Lake RMP.

Issues.—A planning issue can be defined as an unrealized opportunity, an unresolved

conflict or problem, an effort to implement a new management program as a result of new

initiatives or laws and regulations, or a value being lost. The issues concerning the conflicting

demands for consumptive and nonconsumptive uses of Reclamation lands should be

identified in this planning step. Through a public involvement process, Reclamation should

identify as many public issues as possible from a wide variety of users. Reclamation resource

specialists and managers should review internal policies and procedures to identify issues that

could be resolved if an RMP were prepared and implemented. These issues are not generally

raised by the public in formal meetings. The identified opportunities and constraints set limits

for an RMP and keep the team focused on producing a plan that resolves public and entity

issues.

Opportunities.—Opportunities often exist that can provide solutions to the issues raised

externally by the public and internally by Reclamation staff. Opportunities often exist to

enhance, protect, and interpret the resources of a particular Reclamation area as well as to 
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provide for a wide variety of recreation facilities and opportunities through partnerships with

other Federal, Tribal/National, State, local, and private entities. (See attachment N for

examples of opportunities.)

Constraints.—Federal land management entities are constrained by their respective

legislative authorities, budgets, personnel, current policies, and environmental limitations. 

When Project planning and developments are being considered, certain rules, laws, and E.O.s

are triggered that may influence what management actions are proposed in the final RMP. 

Limiting factors—such as slopes, soils, wetlands, critical habitat, and migratory bird nesting

sites—are environmental constraints that can influence future development. Carrying

capacity constraints—such as social, physical, environmental, and facility carrying

capacities—should also be taken into consideration during resource and land use planning.

Water and mineral rights associated with land may also carry constraints.

2. Development of Planning Criteria

Planning criteria are short and concise statements that help establish the sideboards and

parameters for development of the RMP and help highlight major areas of concern. Planning

criteria will assist the ID team members in formulating and selecting combinations of land

uses and management actions that should be considered in the RMP. The criteria should be

documented in the RMP as well as in the NEPA document. The different combinations of

land uses and management actions considered as being feasible in the RMP will eventually be

used to assist in formulating alternatives that will then be analyzed in a NEPA document. The

different combinations of land uses and management actions will be combined into

reasonable planning alternatives. Each one of the alternatives can be considered a separate

draft RMP. The planning criteria can be revised as the planning effort proceeds and as new

information is made available or new issues are identified (attachment O lists possible

planning criteria). Planning criteria are mechanisms for:

P Incorporating and documenting legal requirements

P Explaining to the public how the issues are going to be approached by the ID team

P Identifying sideboards of plan coverage

Closely related to planning criteria is the preliminary set of overall goals and objectives that

should be established at the beginning of the planning process to guide the development of

the RMP. Four examples of overall goals are those which would:
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P Determine the most appropriate uses of all Reclamation-administered land and water

areas within the study area, considering the use of adjacent lands

P Explore ways to enhance and protect natural, recreational, aesthetic, and cultural

resources

P Identify long-term resource programs to address health and safety, fish and wildlife,

and recreation

P Identify financially feasible opportunities or partnerships to assist in managing land

and water areas within the study area

In addition, the objectives contained in Reclamation’s 2000 – 2005 Strategic Plan can be

used to assist in guiding Reclamation personnel in the development of the RMP. The

2000 – 2005 Strategic Plan objectives are listed in chapter I.

The planning criteria, preliminary objectives, 2000 – 2005 Strategic Plan objectives, and the

goals and objectives formulated by the ID team in response to the issues and concerns

establish the sideboards and parameters for the development of the RMP.

3. Inventory Data and Information Collection

During this planning process step, physical and biological resources should be inventoried. 

These include water, soils, vegetation, fish and wildlife, cultural, recreation, and visual

resources, as well as ITAs and TCPs. Additional environmental factors that should be

inventoried include those related to hydrology, the climate, air quality, social and economic

factors, environmental justice, transportation, land use, and noise.

The data collected should be sufficient to address the various issues and concerns and allow

managers to make consistent land use decisions. In most instances, decisions to move

forward in the planning process can be made by using available information. However, it may

be prudent in some instances to initiate studies to collect information that can fill data gaps

and, at the same time, build trust and confidence between the public and Reclamation. When

extracting information from existing data, caution should be taken to ensure the accuracy,

coverage, completeness, and current nature of such data.

Site-specific and regional data concerning each resource should be collected. The following is

a partial list of potential sources of information and data.
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P Land acquisition records

P Soil surveys and land ownership maps

P NEPA environmental studies and reports

P Fish and wildlife inventories and reports 

P Federal Emergency Management Agency flood plain maps

P Standing operating procedures

P Management agreements, Memoranda of Understanding (MOU), Memoranda of

Agreement (MOA), and repayment contracts

P State Comprehensive Outdoor Recreation Plans and regional planning and zoning

studies and reports

P Census information

P Existing GIS databases

P Federal, State, and Indian Tribes/Nations with whom Reclamation coordinates

P Studies and reports prepared by Reclamation (including planning reports [appraisal,

feasibility, and definite plan levels of detail]), universities, and private consultants

P Programs and recommendations of conservation groups and other planning efforts,

such as Partners-in-Flight and North American Waterfowl Management Plan

4. Analysis of Resources and Management Framework

Administration of the land and water areas and associated environmental resources within the

management area usually requires a coordinated effort among several entities that may have

varying degrees of management responsibility. The existing resources should be analyzed

and evaluated in terms of who may have management responsibility (e.g., BLM may have

responsibility for wildland fire management and administering oil and gas activities or grazing

on Project lands; the State game and fish department may have management responsibility

for fish and wildlife; and the State parks department may have responsibility for enforcing

boating activities on the water surface).
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When analyzing the management framework, the ID team should not have preconceived

ideas of what the management alternatives may be for the management area. The ID

team should focus on an assessment of the existing condition and on the management

opportunities, constraints, and limitations that are related to the identified planning

issues and management concerns for the management area before arriving at a preferred

management alternative.

An RMP is, therefore, slightly different than a NEPA document for three primary reasons:

(1) An RMP describes all the resources and environmental factors within the

management area, while a NEPA document primarily describes the resources

and environmental factors that may be impacted by a proposed action.

(2) The RMP describes, in detail, the preferred alternative documented in the

accompanying NEPA document, while a NEPA document alone analyzes the

impacts of one or more viable alternatives (other RMP alternatives that may have

been evaluated and analyzed in the NEPA document are not described in the RMP;

however, an RMP should clearly state that a reasonable number of RMP alternatives

were evaluated and that an EA/finding of no significant impact (FONSI) or

EIS/Record of Decision was prepared before the RMP was finalized).

(3) An RMP is a planning document with built-in implementation and monitoring plans,

while NEPA is a disclosure process relating to impacts of a selected action.

A typical RMP should describe the existing condition of all the resources and environ-mental

factors within the management area, thereby establishing a baseline condition that can be used

to measure the progress and success of the management actions implemented. 

5. Formulation of Alternatives

The basic goal in formulating alternatives is to identify various combinations of land uses and

resource management practices that respond to the issues identified during the planning

process. As discussed earlier under “Planning Process Steps, 2. Development of Planning

Criteria,” different combinations of land uses and Reclamation management actions will

become the management alternatives that are evaluated to assist the ID team in determining

which alternative(s) will become the preferred alternative(s).

Both the RMP process and the NEPA process call for the consideration and evaluation of a

range of reasonable alternatives to a proposed Federal action. The alternatives should meet

the purpose of and need for the proposal while disclosing environmental effects. In this case,
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Chapter III – Planning Process

February 2003

the proposed Federal action would be the preparation and implementation of an RMP. The

RMP alternatives that are formulated should be described in detail and analyzed in the NEPA

document before a preferred RMP alternative is selected. The analysis of the RMP

alternatives in a NEPA document helps managers select an RMP that meets the needs of the

management area. Following are some items to consider when formulating alternatives:

P There should be a logical relationship between the issues, concerns, opportunities and

constraints, and the formulation of alternatives.

P Each alternative studied and evaluated in detail should be considered a compre-hensive

land use plan.

P A No Action Alternative—the baseline against which to compare other alternatives—is

mandatory under NEPA and is necessary under the RMP process.

It should provide a detailed description of the management strategies, resource

conditions, and land use allocations, uses, and trends that would exist if an RMP were

not implemented (the “future condition” without an RMP).

P Each alternative, with the possible exception of the No Action Alternative, should

address and resolve, in a different manner, the issues and concerns raised by the public

and Reclamation.

P Each alternative should be realistic and implementable within anticipated funding and

staffing levels. Alternative elements (management actions) may also suggest that

Reclamation needs to seek additional authorities before implementation of specific

items. (It should be noted that those actions requiring additional authorities will not be

implemented without appropriate authority.)

6. Evaluation of Alternatives

To select the preferred RMP alternative (i.e., the best combinations of land uses and

management actions), a thorough evaluation and comparison of each alternative is needed. 

This is best achieved by completing an impact analysis according to the requirements set forth

in the CEQ regulations for implementing the procedures of NEPA. Knowing the

environmental consequences of implementing an RMP alternative will provide the RMP ID

team and Reclamation managers with the valuable information necessary to select a preferred

management plan. Examination of the RMP alternatives should be based on professional

judgment and the experience of Reclamation staff specialists. Following are some items to

consider when evaluating RMP alternatives:
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P The resources should be analyzed for all alternatives to determine what impacts the

RMP management actions will have on identified resources.

P To the extent possible, Reclamation should quantify impacts of each alternative on the

resources that are analyzed; however, if quantitative estimates are not possible,

qualitative estimates should be documented.

P The “No Action” RMP alternative is the basis of comparison for the “action

alternatives.”

P The depth of analysis should correspond to the scope and magnitude of the potential

impacts.

P Analysis of cumulative effects is critical: the effects of all combinations of land uses

and management actions in each respective alternative should be taken together with

past actions and other actions that will occur or are likely to occur within the

management area. 

P If implementation of an alternative may have a negative effect on a particular resource,

proposed mitigation measures should be documented.

P As a general rule, the evaluation should not focus on causes, but rather should disclose

the effects.

P The alternatives should be presented to the public and other entities to solicit

comments. In other words, a preferred alternative should not be selected before it

is presented to the public and other entities for review and comment.

P The length of public review should be based on area or regional office policy and the

level and scope of the RMP and public concern.

7. Selection of Preferred Alternative(s)

Reclamation should select those combinations of land uses and management actions that are

(1) consistent with existing policy, laws, Project purposes, and the RMP goals and objectives

that were developed to resolve the identified issues; (2) implementable within the specified

planning period; (3) without serious conflicts; (4) within the environmental resource

limitations; and (5) widely accepted by the public and entities. Following are some factors to

consider when selecting the preferred alternative:
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P The preferred RMP alternative may or may not be one of the original alternatives

formulated by Reclamation.

P The preferred RMP alternative may consist of a mix of land uses and management

actions from any of the original alternatives that were analyzed in the NEPA

document.

P If the preferred RMP alternative is different than one of the original alternatives

analyzed, preparers should make sure that an impact analysis is completed and that

cumulative effects and mitigation measures are documented for the new RMP

alternative.

P The rationale for selecting the preferred alternative (and for not selecting others)

should be documented (planning criteria discussed earlier can be used to justify the

selection).

P Once the preferred RMP alternative is selected, it should be presented in a draft NEPA

document to the public and entities for a thorough review before being finalized. 

(Note: The No Action Alternative may be selected as the preferred alternative if it

meets the purpose of and need for preparing the RMP.)

P As mentioned above, the length of public review of document(s) depends on area or

regional office policy, the level and scope of the planning document, and the level of

public concern.

8. Preparation of a Final Resource Management Plan and NEPA Document

An RMP should describe the management framework proposed; needs, opportunities,

and constraints; public and entity issues and concerns; Reclamation goals and objectives;

specific and area-wide management directions and actions for the study area; and an

implementation schedule. As an alternative to preparing an implementation schedule, offices

may consider a collaborative working group process to assist in identifying when certain

management actions identified in the RMP might be implemented. (See the following section,

“9. Implementation and Monitoring of a Resource Management Plan,” for future information

concerning formation of a working group).

Once pertinent comments on the draft RMP have been considered by Reclamation and

incorporated into the NEPA document, if appropriate, the preferred alternative should

be developed into a final RMP. If the RMP and NEPA documents are to be separate

documents, the NEPA document should also be finalized to accompany the final RMP 
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Resource Management Plan Guidebook

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during distribution. If the RMP and NEPA document are to be integrated, then the document

should be finalized and distributed together as one document. When preparing the final

RMP, the following items should be considered:

P The final RMP should be the RMP alternative selected in the NEPA compliance

document.

P The impacts associated with implementing the RMP management actions should be

disclosed in the NEPA document.

P Reclamation should be able to implement the management actions within the

identified planning period.

P There should be a reasonable opportunity to fund the management actions identified in

the final RMP.

P Each of the planning steps has a specific purpose; therefore, information pertaining to

each step should be incorporated directly into the RMP, if so desired.

P The final RMP should provide a history and baseline condition for the different

resources so that the progress and success of the proposed management actions can be

measured.

P If funding is available, cost estimates of the proposed actions should be considered.

9. Implementation and Monitoring of a Resource Management Plan 

As the lead entity with jurisdiction of the lands covered by an RMP, the area office has

primary responsibility for implementation and monitoring of the RMP. In many

instances, however, other entities are also involved with the management of Reclamation

lands. When other entities are involved, there should be a commitment by all of the entities to

seek financial, program, and staffing resources necessary to implement the proposed

management actions. This cooperative relationship should be established through a MOA or

MOU or some other formal/contractual document. Successful implementation and

monitoring of an RMP will rely on the cooperation of all entities involved with management

of the lands covered under the RMP as well as those who use the facilities and lands for a

variety of purposes.

In some instances, it may be appropriate for Project beneficiaries, such as water districts,

power users, or non-Federal managing partners such as State parks or fish and wildlife 
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departments, to share in the cost of implementation and monitoring. Cost-share

arrangements should be governed by contract language, laws, regulations, and

policy.

When appropriate and practicable in implementing RMPs, Reclamation should conduct

collaborative inventory, monitoring, management, research, and information study and

exchange with other entities pertaining to wildlife conservation, such as conservation of

migratory birds. Any data gathered that would benefit breeding, migrating, and wintering

populations and habitats should be shared with national data repositories, such as Breeding

Bird Survey, BBird, and MAPS for migratory birds.

To successfully implement the management actions in an RMP, a realistic implementation

schedule should be developed and outlined in the RMP. Because of the uncertainty of

funding from fiscal year to fiscal year, it may be prudent that management actions be phased

in over a specified period of time as opposed to identifying a certain year in which an action

should take place. As mentioned above in “8. Preparation of a Final Resource Management

Plan and NEPA Document,” an alternative for preparing an implementation schedule could be

the formation of a collaborative working group to determine timeframes for implementing

certain management actions. Reclamation would serve as the lead agency and collaborate

with appropriate stakeholders on a periodic basis to discuss issues, solutions, funding sources,

and implementation priorities of the management actions addressed in the RMP. (See figure

III-2 for an example of the working group process.) The development of annual Work Plans

should include funding requests to accomplish the proposed RMP management actions. 

Some factors that may influence the timing (priority) of when a management action is to be

initiated should be based on whether the action:

P Is procedural or technical (e.g., preparing agreements [former] or developing specific

plans [latter])

P Needs to address public health and safety concerns

P Brings Reclamation into compliance with existing laws, regulations, and E.O.s

P Is required to prevent resource damage or protect wildlife species or habitats

P Requires large capital investments, such as facility or trail development

P Requires the assistance or support of other entities
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Bureau of Reclamation and

working group members

Periodic

meetings

Discuss issues, concerns, and solutions 

Identify funding sources

Review current year budget

Proceed with specific management

actions for current year

Figure III-2.—Working group process.

A good monitoring program:

P Measures the effectiveness of implementation strategies

P Flags inadequacies

P Ensures movement toward the RMP goals and objectives

P Ensures a good working relationship with cooperating entities and the public

P Identifies the need for amendments or revisions

For additional information concerning implementation and monitoring of RMPs, see 

chapter II, “Phase III Post-Administrative Actions Required After Resource Management

Plan Completion, 3. Resource Management Plan Implementation” and “4. Resource

Management Plan Monitoring Program.” (Note: Once monitoring of the RMP begins, results
III-15 Chapter III – Planning Process

February 2003

should be documented in the Recreation Land Management Compliance Reviews or other

reviews, as appropriate.)

10. Amendments and Revisions to a Resource Management Plan

Amendments and revisions are the key to keeping an RMP current. An RMP should

state that the decision to amend or revise the RMP will occur, as necessary, based on the

scope and significance of the needed adjustment. An amendment would generally involve

only one or two planning issues but is necessary when a proposed action does not conform

with the RMP and Reclamation should formally document an amendment and provide

written notification to concerned Federal, State, Tribal/National, and local agencies and other

involved entities and individuals. Reclamation offices have the discretion to determine if a

needed change is an amendment or simply routine maintenance (and official documentation

and notification is not necessary). Routine maintenance may include posting new

information, refining an analysis, or making minor changes in a management action.

Reclamation should review each RMP before the end of its planning life to determine

if it has become outdated or otherwise obsolete. If the RMP is outdated or obsolete,

Reclamation should prepare a comprehensively revised RMP following this guidebook.

A list of factors that could trigger an amendment or a revision in an RMP may include:

P Availability of new data

P Readjustments that become necessary because of changes in social, physical,

environmental, or economic conditions

P Realignments needed to accommodate changes that occur during implementation

and/or monitoring of the RMP

P Unforeseen uses requiring authorization of permits, contracts, and cooperative

agreements that are not consistent with or addressed in the RMP

NEPA Compliance Concurrent with the Planning Process

NEPA requires that a detailed report be prepared on the environmental effects of a proposed

major Federal action that may have significant effects on the human environment. The

Federal action in this case is the preparation and implementation of an RMP. The regulations

implementing NEPA provide several procedural avenues to determine if or how this

requirement applies to a particular Federal action. Some activities may not require NEPA;

these include the continuation of normal operations or situations (and no Federal decision is
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Resource Management Plan Guidebook

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involved in the action). CEs exclude categories of Federal actions from further NEPA

documentation because the action has been shown not to have a significant effect on the

environment.

An RMP will, however, likely be accompanied by an EA or EIS. Reclamation applies NEPA

to actions when it is required (below) and may use NEPA procedures when the information

would be helpful in the decisionmaking process. Reclamation’s directives and guidance on

implementing NEPA are contained in Reclamation’s NEPA Handbook. When questions arise

concerning NEPA and the development of RMPs, it is recommended that the handbook be

used and area and regional office NEPA staff be consulted.

It is important to remember that the NEPA process is being conducted concurrently with the

RMP planning process (see figure III-3 to see how the planning process and the NEPA

process fit together). When an EA or EIS is being prepared for an RMP, it is necessary to

develop the RMP and EA or EIS concurrently. When practicable, the two documents (the 

EA or EIS and the RMP) can be combined into one document. If the RMP and the EA

or EIS are combined, it is important for Reclamation to ensure that all the procedural

requirements of NEPA are incorporated into the document and that all the planning process

steps are thoroughly discussed in the combined document. It should be left to the area office

or regional policy to decide if the RMP and NEPA documents should be combined or if the

documents should be developed separately (see attachment P, part I, for examples of a

Table of Contents for stand-alone RMP documents and attachment P, part II, for an

example of a Table of Contents for an RMP/NEPA document that has been integrated). (For

an additional example, see the RMP outline presented in chapter IV.)

The NEPA report for the RMP would go through the following steps:

P Identify the purpose of and need for the action

P Inventory resources

P Analyze the alternatives

P Identify impacts and mitigation of impacts

P Make a final NEPA decision (i.e., make a selection as to which NEPA RMP alternative

will become the RMP that is implemented)
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Figure III-3.—Planning schedule process.
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Figure III-4.—CE process flowchart (NEPA Handbook).

CEs address the effects of actions that have been determined to be so insignificant that no

NEPA analysis is required (see figure III-4). These actions are defined in the DM and can be

found in Reclamation’s NEPA Handbook. The two applicable lists of CEs are the

departmental list (DM Chapter 2, appendix 1), which apply to all DOI entities, and the

Reclamation-specific list (DM Chapter 6, appendix 9).

Reclamation has developed a CE checklist to assist in the proper application of Reclamationspecific CEs. Although not mandatory, this checklist should be used when a Reclamationspecific CE is applicable, but it is not required when a departmental CE is applicable (note that

it may still be advisable to use the checklist for departmental Ces). CEs simply provide a

method of documenting that a NEPA review of a proposed action took place and that

Reclamation was able to determine there would be no significant impacts to any resource of

concern.

CEs that may be applicable to RMPs include Departmental Exclusion 1.10 and Reclamation

Exclusion 9.4C4. Departmental Exclusion 1.10 addresses policies or directives that are

administrative or that are too broad, speculative, or conjectural for meaningful analysis. 

Reclamation Exclusion 9.4C4 addresses approval on land management plans when

implementation will only result in minor construction activities and minor changes in

operation and maintenance (O&M) activities. The applicability of these, or any other CEs,

depends on the content of any particular draft RMP. If the RMP reflects any real changes in

operations, facilities, or management that affect environmental resources, it is highly unlikely

that a CE would apply.
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Chapter III – Planning Process

February 2003

The EIS is a detailed document that displays the environmental effects of a proposed action

and reasonable alternatives. An EIS needs only be prepared if there are potentially significant

effects on the environment. This leaves a large grey area between activities excluded by a CE

and activities where potentially significant effects are obvious and an EIS is determined

appropriate from the beginning. It is to address this grey area that EAs are defined in the

regulations. An EA is intended to be a brief document that concludes that no significant

impacts exist (documented in a FONSI) or that significant impacts may exist, triggering the

preparation of an EIS. Guidance on preparation of an EA can be found in Reclamation’s

NEPA Handbook (see figure III-5).

An EIS is normally prepared for a major Federal action that significantly affects the quality of

the human environment. However, the final determination to prepare an EIS could be the

result of many factors, including the level of controversy, environmental considerations,

Project history, and the language in the existing regulations. Procedural requirements for an

EIS are discussed in detail in Reclamation’s NEPA Handbook (see figure III-6).

Public involvement and scoping are required for RMPs. The PIP for an RMP is further

discussed in chapter II, “Phase II Administrative Actions Required During the Preparation of

a Resource Management Plan, 2. Preparation of a Public Involvement Plan.”
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Figure III-5.—EA process flowchart (NEPA Handbook).
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Chapter III – Planning Process

February 2003

Figure III-6.—EIS process flowchart (NEPA Handbook).
Chapter

IV Components of a Resource Management Plan

Introduction

An RMP is a repository of pertinent information that integrates and displays the manage-ment

action(s)/direction(s), implementation strategies and monitoring procedures, as well as other

plan decisions that apply to an area of land administered by Reclamation. The RMP should

also contain information that directly relates to decisions made and information collected as a

result of following the major steps in Reclamation’s planning process (e.g., identification of

issues, opportunities and constraints, resource inventory, and the formulation of goals and

objectives, as discussed further in chapter III). The RMP also contains maps and attachments

and other information relevant to the way in which the area is to be managed. The RMP is a

public document and a vision for the future that is clear, understandable, and readily available

for Reclamation staff to follow and implement.

To provide consistency and uniformity in the preparation of RMP documents, it is

recommended that each respective RMP follow a suggested format that contains certain

components, some of which should be considered essential. However, since the guidance

provided in this guidebook is discretionary, individual offices have the flexibility to modify

the format of the RMP and select the components appropriate for their individual RMPs.

It is further recommended that deviation from the suggested format be limited to only the

main chapters of the RMP. In other words, local offices have the flexibility to format the

main chapters of the RMP in a variety of ways as long as certain essential components

are addressed somewhere in the main body of the RMP document. It is important to

remember that the essential components of the RMP should always be in a logical order. To

give the user of this guidebook a good idea of the possible ways to format and present the

information contained in an RMP, attachment P contains four different format examples that

area offices have used to structure an RMP. (Note: The format examples in attachment P,

part I, are represented by three different Table of Contents for stand-alone RMP documents

while one example, attachment P, part II, is a Table of Contents for an integrated

RMP/NEPA document.)

Offices responsible for preparing RMPs should consider the need for technical writing or

editorial assistance. Such assistance can be invaluable in producing superior documents. 

Potential sources of assistance may include area office, regional office, or TSC staff,

depending on the specific resources available. The TSC (Denver) can provide expertise (on a

contract basis) through its Technical Communications Group (D-8011).
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Standard Format

Except for the essential components to be included in the main chapters of an RMP, it is

recommended that the components listed below appear in the RMP document in the

order they are listed below. Some optional components are also identified. The essential

components to be included in the main chapters of the RMP are listed in number 11 and

appear in no particular order or preference. Following is the suggested format of the

components of an RMP:

1. Cover

2. Inside Cover

3. RMP Document Guide – Schematic that serves as a reference tool to assist the reader

 in locating certain information in the RMP (optional)

4. Finding of No Significant Impact (optional)

5. Title page

6. Inside Title Page

7. Preface (optional)

8. Executive Summary (optional)

9. Abbreviations and Acronyms

10. Table of Contents

11. Essential Components Included in a Resource Management Plan (A through Q should

 be grouped and arranged in logical order)

A. Introduction 

B. Purpose Statement

C. Authority

D. Organization and Scope of an RMP Document

E. Project History

F. Location/Setting

G. Overview of Public Involvement Efforts

H. Overview of Consultation Efforts

I. Management Framework

J. Planning Process

K Opportunities and Constraints

L. Issues and Issue Categories

M. Existing Resource Inventory/Existing Condition

N. Goals and Objectives

O. Desired Future Condition

P. Management Action(s)/Direction(s)

Q. Implementation Procedures (monitoring, standards and guides, and plan

 revision or amendment)

12. List of Preparers

13. List of References/Bibliography

14. Glossary of Terms

15. Attachments/Appendices
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Chapter IV – Components of an RMP

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Standard Format Components Included in a Resource

Management Plan

The following information describes each of the components that should be presented in an

RMP. The components are listed in the format order in which they are cited above. To aid

the user of this guidebook and to facilitate consistency in the preparation of RMP documents,

examples with information to be included in certain components of actual RMPs have been

provided. In other instances, a brief narrative description is used to explain what information

should/could be addressed within each component. Following are the components of an

RMP and suggested information that could be included:

1. Cover

The front cover of all Reclamation RMPs should have the following information:

P The RMP name, such as Agate Lake Resource Management Plan, in the upper half of

the page in large bold type.

P The date the RMP was published below the RMP name (include at least the month and

year, such as “September 2000”).

P “United States Department of the Interior” preferably located in the lower left-hand

corner of the cover, with the DOI logo to the right.

P “Bureau of Reclamation” located below “United States Department of the Interior,”

with the Reclamation logo to the right.

P The name of the region in which the RMP is being prepared below “Bureau of

Reclamation.”

P The name of the area office where the RMP is being administered below the name of

the region.

P The names of the cooperating entities listed below the area office name, with their

logos to the right.

P Other graphics, backgrounds, and color on the cover may be used at the discretion of

the office preparing the RMP.
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2. Inside Cover 

The inside cover (back of the front cover) should contain the mission statements and any

contract information associated with the preparation of the RMP. The information should be

listed as follows:

P Mission statement of the Department of the Interior

Department of the Interior

“The mission of the Department of the Interior is to protect and provide

access to our Nation’s natural and cultural heritage and honor our trust

responsibilities to Indian tribes and our commitments to island

communities.”

P Mission statement of the Bureau of Reclamation 

Bureau of Reclamation

“The mission of the Bureau of Reclamation is to manage, develop, and

protect water and related resources in an environmentally and economically

sound manner in the interest of the American public.”

P Mission statements of the managing entities

Example: Jackson County Parks

“To protect Jackson County’s recreational resources and provide a quality

County Park system that meets recreation needs and provides recreation

opportunities to the citizens and visitors of Jackson

County.”

P If prepared by a consultant, the name, mailing address, and government contract

number should be listed.

Example: “This Resource Management Plan was prepared by the Bear West

Consulting Team in cooperation with, and for, the Department of the

Interior, Bureau of Reclamation, Upper Colorado Region, under Contract

No. 1425-2-CA-40-12580, delivery order 002, entitled, Preparation of

Resource Management Planning for Deer Creek.”

See the figures on the following page for examples of a cover and an inside cover.
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Chapter IV – Components of an RMP

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(a) Example of a cover. (b) Example of an inside cover.
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3. RMP Document Guide (Optional)

A schematic that serves as a reference tool to assist the reader in locating certain information

in the RMP could be provided. An example of a document guide is included as attachment

Q. (Note: This example is taken from an integrated RMP/NEPA document.)

4. Finding of No Significant Impact (Optional)

If a FONSI for the Federal action of preparing an RMP is signed by the responsible

Reclamation manager, a copy of the FONSI may be included in the final RMP document. 

This will allow the reader to see a brief discussion of why the impacts described and analyzed

in the concurrent EA were not significant enough to prepare an EIS. Otherwise, the reader

would have to go directly to the EA to locate this type of information. An alternative for

including a copy of the FONSI in the RMP document would be to discuss briefly the NEPA

process and associated impacts somewhere in the main body of the RMP or in an Executive

Summary.

5. Title Page

The next page (title page) of an RMP should be exactly like the cover in terms of information,

but it should not display the DOI, Reclamation, or a managing partner's

logos or symbols.

6. Inside Title Page

The next page (back of the title page) is similar to the cover and title page, but contains the

name of the Project and its location. Following is an example of what should be on the back

of the title page:

P The RMP name, such as Agate Lake Resource Management Plan. This should at the

top of the page, followed in the lower left by:

P The name of the Project, such as “Rogue River Basin Project,” with the name of the 

managing office, including city and State, such as “Talent Division, Medford, Oregon,”

followed by:

P “United States Department of the Interior,” and “Bureau of Reclamation,” with the

name of the regional office, including city and State, such as “Pacific Northwest

Region, Boise, Idaho,” followed by:
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Chapter IV – Components of an RMP

February 2003

P If you wish, the name, mailing address, and phone number of the area office, including

city and State, such as “Lower Columbia Area Office, Portland, Oregon,” followed by:

P If appropriate, “In cooperation with” and the name of the cooperating entities,

including city and State, such as “Jackson County Parks, Medford, Oregon,” followed

by:

P Date (include at least month and year).

See the figures on the following page for examples of a title page and back of a title page.

7. Preface (Optional)

A Preface could be provided that would acknowledge certain groups, individuals, or entities

that provided valuable input into the development of the RMP. The preface could also be

used to briefly state the purpose of the RMP or to articulate why some action was not

addressed (e.g., the action of transferring lease lots within the management area is being

covered by a separate NEPA process). (See attachment R for an example of a brief Preface

from an integrated RMP/NEPA document.)

8. Executive Summary (Optional)

An Executive Summary could be provided that outlines the sideboards for development of

the RMP and summarizes the RMP planning process and the contents of the RMP. This

would give the reader a brief narrative description of what is contained in the RMP

(i.e., critical issues, management action(s)/direction(s), public involvement and consultation

efforts, and others).

9. Abbreviations and Acronyms

A list of abbreviations and acronyms should be included in the RMP. Following is an

example of a list of abbreviations and acronyms:

Abbreviations and Acronyms

BIA Bureau of Indian Affairs

BLM Bureau of Land Management
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(c) Example of a title page. (d) Example of an inside title page.
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Chapter IV – Components of an RMP

February 2003

cfs cubic feet per second

District Rogue River Valley Irrigation District

EA environmental assessment

ESA Endangered Species Act

FONSI finding of no significant impact

FS U.S. Forest Service

HB House bill

ITAs Indian Trust Assets

LWCF Land and Water Conservation Fund

mg/L milligrams per liter

NEPA National Environmental Policy Act

NPS National Park Service

NWI National Wetlands Inventory

O&M operation and maintenance

OHV off-highway vehicle

Reclamation Bureau of Reclamation

RMP Resource Management Plan

SCORP State Comprehensive Outdoor Recreation Plan

Service Fish and Wildlife Service

SHPO State Historic Preservation Officer

Stat. Statute

TCPs traditional cultural properties

μg/L micrograms per liter

μs/cm microsiemens per centimeter (units used to measure

conductivity of an aqueous solution)

EF degrees Fahrenheit

10. Table of Contents

The next page (or page after the abbreviations) of an RMP should be a Table of Contents.

Headings can be added for tables, figures, photographs, and maps, as necessary and

appropriate, and a heading can be included to indicate attachments/appendices, followed by

their respective names and page numbers.

11. Essential Components Included in a Resource Management Plan

The following components should be considered essential and included in the main body of

an RMP. The below-mentioned components are not necessarily chapters within the RMP

document. As stated earlier, the location of the essential components that should be included

in the main chapters of the RMP can be determined by the local offices. Several of the
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essential components can be combined to form an individual chapter (e.g., the introduction,

purpose statement, authority, organization and scope of the RMP, project history, and

location/setting essential components can be combined to form the intro-ductory chapter of

the RMP). A suggestion on ways to combine certain components in the same RMP chapter,

when appropriate, is described below. (Refer to attachment M, parts I and II, for examples

on ways in which the goals and objectives, issues and issue categories, and the management

action essential components could be combined in the same chapter. Also refer to the four

tables of contents examples in attachment P, parts I and II, for further guidance on how

certain components may be combined into a specific chapter in the RMP.)

A. Introduction.—This component of the RMP should provide a brief but concise

overview of the document. It should state that the RMP is to provide management

action(s)/direction(s) that protect the rights of entities based on existing grants, contracts, and

legislation, while identifying and scheduling measures to achieve a desired future condition. It

should state that the RMP establishes management action(s)/direction(s), both area-wide and

specific, in the form of goals, objectives, standards, and guidelines, and that the RMP includes

monitoring and evaluation requirements to ensure conformance. It should indicate the

planning period on which the RMP was based and that it will be updated or revised, as

appropriate, over time. This component is usually part of the introductory chapter of the main

body of the RMP and should be accompanied by a location map showing the location of the

management area within the State/region the RMP is being prepared. (Refer to the location

map in attachment S for an example.)

B. Purpose Statement.—This component should state the reason(s) for preparing an

RMP and indicate that the RMP is to guide future land resources management to ensure lands

and waters are maintained and protected for authorized Project purposes. It should also state

that the RMP establishes consistent management and guidance and ensures that activities or

uses are in compliance with applicable Federal, State, and local laws, regulations, and policies. 

This component is most often included in the introductory chapter of the RMP.

C. Authority.—This component should include authorities to prepare the RMP/EA,

Project authorities, and others, as appropriate. This should also include applicable legislation,

such as P.L. 89-72 (as amended), or other specific laws that address the management of lands,

how they are to be managed, and who is authorized to manage the lands. This component is

most often included in the introductory chapter of the RMP.
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February 2003

D. Organization and Scope of an RMP Document.—This component should inform the

reader of the way the document is divided into areas or chapters. This component is most

often included in the introductory chapter of the RMP. Following is an example of how the

preparer of an RMP might address this component:

P Chapter I provides introductory information about the area and the RMP, describes the

purposes of and authorization for the RMP, describes the location of the RMP study

area, and gives a brief history of the management area. 

P Chapter II provides an overview of Reclamation’s planning process, summarizes the

issues, identifies the issue categories established for the management area, and

provides an overview of public involvement activities and coordination efforts with

other agencies and Indian Tribes/Nations.

P Chapter III describes the existing resources and environmental factors within the RMP

study area, identifies the other entities that may have involvement in the study area

(management framework), and identifies opportunities and constraints.

P Chapter IV describes the future condition, sets forth the management action(s)/

direction(s) outlined for the management area, and identifies the goals and objectives

established to meet the identified issues.

P Chapter V establishes the implementation schedule of the RMP, including actions,

budgets, responsible entity(ies), and appropriate timeframes.

P Chapter VI identifies monitoring procedures and the standards and guides used to

monitor the implementation actions.

P Information following the chapters includes a List of Preparers, including the ID team,

entity representatives, and consultants; References/Bibliography; and a Glossary. 

Attachments include reports, agreements, tables, maps, figures, photos, and others, as

needed.

E. Project History.—This component should briefly explain the history of the management area and include the congressional authorization for the Project, description of the

Project, purposes for which the Project was authorized (i.e., irrigation, flood control, fisheries,

recreation, and other), dates when the Project was begun and completed, and repayment

entity(ies). National, regional, or local interagency MOUs or MOAs for management of 

lands and resources could be addressed along with policy letters from the Commissioner 

of Reclamation, regional office, or area office. Additional information on the history of the 

area may be added, as appropriate. Many Project histories have been completed and are
IV-12 Resource Management Plan Guidebook

February 2003

available from the History Program staff in the Office of Policy (D-5300) or through the

“Data Web” link on Reclamation’s Web site. This component is most often included in

the introductory chapter of the RMP.

F. Location/Setting.—This component should state the location on a river(s) or

tributary(ies); the county, State, township, and range in which the management area is

located; and the distance and direction from cities, towns, National Forests, parks, mountain

ranges, Indian reservations, and other major landmarks. This component should include a

map that outlines the management area boundary and is most often included in the

introductory chapter of the RMP. (See attachment S for an example of study/ management

area maps.)

G. Overview of Public Involvement Efforts.—This component should list the parts of

the public involvement plan that were implemented, including meetings with managing

entities, affected jurisdictions, users, and area-wide special interest groups; general public

scoping, and any surveys and mailings such as the distribution of news releases. The date that

the public process was begun should be mentioned along with the number of public meetings

and the number of attendees at each meeting. This component is often included in the

introductory chapter or in the same chapter that describes the planning process.

H. Overview of Consultation Efforts.—This component should include a discussion of

the consultation efforts that occurred during the planning process. The discussion should

include both formal and informal consultation efforts that may have been initiated with

entities such as the FWS, NOAA Fisheries, and Indian Tribes/Nations. Dates that letters were

mailed to certain entities, meeting dates, results of meetings, and other findings should be

documented in the RMP. This component is often included in the introductory chapter or in

the same chapter that describes the planning process.

I. Management Framework.—This component should include important information

pertaining to all parties that manage or would be interested in and eligible to manage through

contracts, agreements, MOUs, O&M agreements, repayment contracts, or Tribal/National

interests; by virtue of resources managed by State or Federal statute (i.e., boating, hunting,

wildlife management, or wetlands); and/or by any individuals or organizations that hold

license agreements, concessions, and permits on the lands covered by the RMP. Information

pertaining to managing entities that do not manage through an agreement, but manage

pursuant to existing laws and regulations, such as the FWS or State game and fish and parks

departments, should be provided. The management framework component could be included

in the land use section of the resource inventory component, a separate chapter in the main

body of the RMP, or part of the introductory chapter.
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1

 Carrying capacity can be described as the ability of a resource to accommodate a user population at

a reasonable threshold without the user population negatively affecting the resource sustainability and more specifically as

follows: Environmental carrying capacity—the effects that a level of recreation use will have on resources, such as

vegetation, fish, wildlife, soils, water, and air; social carrying capacity—the impacts that resource users have on one

another; physical carrying capacity—the area that is available to a recreationist for a specific recreation activity; facility

carrying capacity—the ability of an existing facility to accommodate the current level of recreation use.

J. Planning Process.—This component should include a brief narrative overview of

the planning and NEPA processes used to develop, analyze, and select the preferred RMP

alternative. It is not enough to simply show the reader of an RMP a schematic that represents

the planning or NEPA process and the way in which they are related. It is more important

that the reader understand why certain decisions were made. As an example, the reader may

want to know that a critical issue raised at a public meeting resulted in the formulation of a

goal and associated objectives by an ID team and that the objectives were transformed into

management action(s)/direction(s) that would be implemented at some point in the future. 

The planning process component is likely to appear in the same chapter that first presents a

summary of the issues, an explanation of the issue categories, and an overview of the public

involvement and consultation efforts. (Refer to chapter III for further planning and NEPA

process information.)

K. Opportunities and Constraints.—During the planning process, certain opportunities

and constraints should be identified by the ID team and documented in the RMP. This

component of the RMP should contain a discussion of the opportunities and constraints that

affect Reclamation’s ability to manage the area covered by an RMP. If possible,

the opportunities and constraints should be identified for each of the resources within the

management area. An environmental constraints map showing critical habitat, steep slopes,

100-year flood plains, wetlands, and other features could be included to supplement this

component. (Refer to the Environmental Constraints map in attachment S for an example

and see attachment N for examples of opportunities that may be available.)

Opportunities and constraints in the management area can be categorized as follows:

P Legal – Those that address the laws and authorities that pertain to a management area

and the opportunities and constraints they establish, including sources of funding,

authorization for non-Federal partners to manage, water quality constraints, and

priority uses of resources for water delivery, flood control, recreation, wildlife, and

others (i.e., real property rights—water, mineral, easements, etc.).

P Carrying capacity1 — If enough information is known, environmental, social,

physical, and facility carrying capacity and potential thresholds should be addressed in

this 
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component. Since Reclamation’s goal is proper stewardship of Federal land, it is

appropriate to set a limit on resource use that can be sustained without adversely

affecting the resource beyond an acceptable level.

P Environmental – This includes environmental factors that establish opportunities or 

constraints: soils, topography (steep or gentle slopes), flat-water surface area,

navigable rivers, wetlands, wildlife, cultural resources, historical resources, endangered

species, water quality, and others.

L. Issues and Issue Categories.—During public involvement and internal scoping, a

variety of issues will be identified. This component should document the issues. It is

suggested that similar issues be grouped into issue categories to facilitate the formulation of

goals and objectives and ultimately the establishment of management action(s)/direction(s)

that will address each issue category. Following are several examples of issue categories that

could be created into which similar issues could be grouped:

P Partnerships – These issues deal with the management of certain resource programs

within the management area by entities such as water user organizations, Indian

Tribes/Nations, and State wildlife and recreation departments.

P Water resources – These include water quality and water quantity issues related to

different land uses and their effects on natural resources, recreational use, and Project

purposes.

P Recreation and visual resources – These issues relate to the relationship between

recreation and other land uses, potential conflict among different types of users and

natural resources, concerns of dispersed and developed recreation uses with existing

management, peak use concerns for public safety and its resource impacts, and scenic

qualities of the area that are important to the overall recreation experience.

P Natural and cultural resources – It is important to identify issues relating to the

vegetation, wildlife (including migratory birds), fisheries, threatened and endangered

species, cultural, historic, and paleontological resources within the management area. 

Issues may relate to management, seasonal conflicts, conservation measures, grazing

practices, user conflicts, noxious weeds, pests, and others.

P Health and safety – These issues pertain to the posting of rules and regulations

governing the use of the management area; providing a safe, healthy, and enjoyable

environment and experience for the visiting public; ensuring safe and usable facilities;

and providing an acceptable level of law enforcement.
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P Public information – These issues pertain to providing a variety of public information

about conditions at the management area (i.e., reservoir elevations, usability of boat

ramps, and others) and providing through different media (e.g., internet, brochures,

radio, maps, and pamphlets) information about the opportunities that may be

available.

P Land management – This broad area covers all land management action(s)/

direction(s), such as trespass, adjacent land uses, utilities, use authorizations, roads,

trails, fencing, and uncontrolled access.

The issue categories mentioned above may vary depending on the types and quantity of

issues identified. For example, if the management area contains numerous Project

facilities—such as canals, power substations, borrow areas, and others, that may conflict with

the public’s desire to use the land for other purposes—it may be prudent to establish a

separate issue category entitled, “Project Facilities.” Then, the issues related to this category

and Reclamation’s management action(s)/direction(s) addressing those issues can be easily

identified by Reclamation personnel.

P Project facilities – These issues cover existing Project facilities and purposes within

the management area that need to be protected or otherwise addressed. Security of

Project facilities should also be addressed.

A summary of the issues and the issue categories will likely appear in the same chapter that

explains the planning process. In another chapter of the RMP, the issue categories are likely

to be mentioned again along with the goals, objectives, and management action(s)/

direction(s) to show the direct relationship.

M. Existing Resource Inventory/Existing Condition.—This component should provide

a complete (to the extent possible) description of the existing physical, biological, and

socioeconomic conditions of the management area. This should provide the baseline for

developing the RMP, monitoring resources, and measuring successful implementation of the

RMP. This includes all of the important environmental and cultural data that should

be collected and/or compiled in the RMP document for evaluating impacts in the NEPA

compliance document and for future reference. (Note: A summarized version of this

component should appear in the “Affected Environment” section of the NEPA document.)

Refer to attachment T for examples of resources and resource information that should be

addressed in the RMP.
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N. Goals and Objectives.—Goals and objectives should be established by the ID team to

address the issues and issue categories mentioned above. The goals should be expressed in

general terms and should describe a desired condition to be achieved within the planning life

of the RMP. The objectives are brief statements that describe a broad-based strategy. These

goals and objectives should be presented in the RMP so that the public can easily see how

their issues were addressed. The goals and objectives are most often discussed with the issue

categories and management action(s)/direction(s) components and appear in the same chapter

of the RMP. Following are several examples of goals that could be established for different

issue categories. (Refer to attachment M, parts I and II, for examples of ways to present

the goals and objectives. Note: attachment M, part II, also documents the specific

management action(s)/direction(s) that were established to accomplish the goal and

objectives.)

P Partnerships – Goals in this area could include working with, maintaining, supporting,

adding, pursuing, discontinuing, and improving partnerships with water users and local,

State, Tribal/National, and Federal entities, and special interest groups, such as resource

conservation organizations, to achieve a stated goal for the management area.

P Water resources – Goals in this area could include protecting water integrity,

controlling pollution, and supporting uses and programs that enhance stated goals for

the management area.

P Recreation and visual resources – Goals in this area could include expanding, maintaining, limiting, improving, managing, developing, or rehabilitating recreation

facilities; providing accessibility opportunities; and evaluating impacts of recreation

use within the management area.

P Natural and cultural resources – Goals in this area could include compliance with

laws and Executive orders and protection, improvement and enhancement for wildlife,

wetlands, fisheries, cultural, historic, paleontological, vegetation, soils, and noise and

air quality resources within the management area.

P Health and safety – Goals in this area could include providing a safe and healthy

environment for visitors, increasing public awareness regarding safety and security,

providing signs to warn visitors of possible hazards, and posting rules and regulations.

P Public information – Goals in this area could include providing visitor information

through interpretive media, newsletters, or maps, etc., and providing visitor services

such as visitor centers or resource programs such as wildlife observation and

interpretive programs.
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P Land management – Goals in this area could include locating, posting, fencing,

closing, opening, permitting, leasing, and licensing lands to ensure appropriate and

compatible land uses, resource protection, user safety, disposal and acquisition,

trespass resolution, removal of abandoned personal property, and avoidance of

conflicts within the management area.

P Project facilities – Goals in this area could include protecting Project facilities and

purposes, eliminating conflicts, and fencing and signing of facilities for security

purposes.

O. Desired Future Condition.—This component is a short narrative of what the future

of the management area should be as a result of implementing the RMP. It may be to

improve coordination and cooperation among entities; reduce water pollution; optimize,

expand, or limit recreation use; develop, remove, expand, or rehabilitate recreation facilities;

improve interpretation and education opportunities; achieve sustainable vegetation and

wildlife levels; expand, enhance, or protect wetlands; improve fisheries; limit utility corridors

to identified areas; or to develop mineral resources in an environ-mentally sensitive manner. 

See attachment U for an example of a Desired Future Condition Statement.

P. Management Action(s)/Direction(s).—This component provides management

action(s)/direction(s) for the management area in response to land use requests, public issues,

and management concerns. As recommended earlier, the goals and objectives are typically

displayed with the applicable management action(s)/direction(s) component. To assist the ID

team members in writing this component, each member should follow the guidance provided

in the Reclamation manuals to determine how the variety of resource programs are or should

be managed. Implementation of the management action(s)/ direction(s) should result in

attaining the goals and objectives of the management area. All uses and activities of the

management area, including permits, contracts, and other instruments, should be consistent

with the following:

P Management area (area-wide) management action(s)/direction(s) – These are overall,

general requirements that equally apply to the entire management area.

P Specific area management action(s)/direction(s) – These are requirements that only

apply to a specific area identified within the management area and are unique to that

area. 

It is recommended that the area-wide management action(s)/direction(s) be listed first

and specific area management action(s)/direction(s) second. The management
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action(s)/direction(s) can be written in a narrative or table format. As stated earlier, the

management action(s)/direction(s) are consistent with the goals and objectives and the issue

category essential components to allow the public to easily identify how the identified issues

were addressed.

Many of the issues identified from internal scoping and public involvement are likely to be

similar from one management area to another; therefore, the goals and objectives and

associated management action(s)/direction(s) are likely be similar from one RMP to another. 

The management action(s)/direction(s) should not only address the issues but also reflect

Reclamation’s overall goal of correctly managing its resources and facilities pursuant to

existing laws, regulations, and Executive orders, as well as its policies, directives, standards,

and guidelines. See attachment V for general guidance on developing management actions

that may be appropriate to include in an RMP.

Q. Implementation Procedures (Monitoring, Plan Revision or Amendment, and

Standards and Guides).—Three key elements of this component are monitoring, plan

revision or amendment, and standards and guides. This component should state that the

implementation of the RMP by Reclamation and its partners will be guided by existing

and future laws, Executive orders, regulations, and policies and guidelines, and that the RMP

is designed to supplement existing direction provided by these sources. It should

also indicate that there is a need for coordination and cooperation with partners and

administering entities for the successful implementation of the RMP. The monitoring and

standards and guides are most often incorporated into an implementation schedule. Other

items that could also be included into the implementation schedule are the identified

management action (specifically what is to be accomplished), the target year or years for

implementing the management action(s)/direction(s), priority level, funding source, and the

responsible entity or entities, including appropriate contacts (i.e., referencing an individual,

office, city, county, institution, or entity and their appropriate phone and/or fax numbers and

physical and/or email addresses may be helpful). The implementation schedule can be in a

narrative or table format. Most managers and users of this component prefer a table format. 

(Refer to chapter III, “Planning Process Steps, 9. Implementation and Monitoring of a

Resource Management Plan” and “10. Amendments and Revisions to a Resource

Management Plan” for additional information.)

Monitoring.—Monitoring efforts taken to track the success of implementing the

management action(s)/direction(s) should be included in the implementation schedule

(i.e., how to evaluate, observe, enforce, comply, achieve, document, or report concerning the

action, or determine that the management action was achieved). It should be mentioned that

these monitoring efforts would occur periodically over the planning life of the RMP.
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Chapter IV – Components of an RMP

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Tables can be a valuable asset when performing monitoring. A table format that facilitates

monitoring of the multiple resources by various disciplines can expedite these efforts. It is

suggested that those monitoring the work assist in the layout and organization of the tables. 

(See attachment Wfor an example of monitoring review forms that were used exclusively to

conduct field reviews to tract the implementation actions. Note: These monitoring forms

were completed independently and were not part an RMP document.) 

Following are a few examples of existing reviews and monitoring efforts already being

conducted on Reclamation lands that might be used to assist in monitoring the possible

management action(s)/direction(s) identified in an RMP:

P Real Property Utilization Reviews

P Recreation Compliance Reviews

P Withdrawal Reviews

P Hazardous Waste Management Reviews

P Concession Compliance Reviews

P Land Use Authorization Reviews

P Review of Pest Management/Resource Protection Plans

P Wetlands Inventory and Monitoring

P Water Quality Monitoring

P Facility Condition Assessments

P Accessibility Reviews

P Review/Monitoring of Underground Storage Tanks

P Mitigation Reviews

P Associated Facilities Reviews

P Comprehensive, Periodic, and Annual Reviews of Dams

P Comprehensive, Periodic, and Annual Reviews of Powerplants

Plan Revision or Amendment.—It should be stated in the RMP document that an RMP

revision or update would occur as necessary. The procedures to revise or amend the RMP

should be stated in this component.

Standards/Guides.—For each identified management action(s)/direction(s), it is

recommended that each of the action(s)/direction(s) be accompanied by standards or guides

that state the laws, CFRs, agreements, best management practices, or other directives to

follow in meeting the management action(s)/direction(s). In many instances, the standards or

guides will be the Reclamation manual for a specific program, as mentioned throughout this

document. Following are a few examples of standards and guides for different resources and

parameters that might assist Reclamation offices in the completion of the standards and

guides portion of the implementation schedule:
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Water Resources, Quality, and Use.—

P Water operations – Standards or guides are the Annual Operating Plan, Standing

Operating Procedures, Emergency Action Plan, Designer’s Operating Criteria, and any

environmental stipulations for compliance resulting from a NEPA document. 

P Water quality — Standards or guides are the State and Federal water quality standards

for drinking, wildlife, and other identified uses. 

P Watershed protection — The standard or guide is the current water quality standards

in place and the terms and conditions of contracts with other entities. 

Recreation-Related.—

P Recreation development — The standard or guide is that provided by law (such as P.L.

89-72 as amended by Title 28 of P.L. 102-575) and agreements with managing entities. 

P Recreation management — The standard or guide is the NEPA document identifying

the appropriate levels of use, recreation opportunity spectrum (ROS) System (Chapter

60, Project Planning ROS Users Guide and Chapter 63, ROS Setting Indicator and

Analysis Technique Guidelines, FS), or as identified in contractual agreements with

managing entities and State and Federal laws and visitor center policy, directives,

standards, and guidelines.

P Recreation planning — The standard or guide should be the recreation use and

facilities identified in a NEPA document and/or the FS ROS System Chapter 25, ROS

Users Guide.

Fish, Wildlife, and Vegetation.—

P Habitat/fisheries management — The standard or guide is the State fishing regulations

and the construction of habitat enhancement structures where compatible with the

operation of the Project and safety of the public. State and Federal laws and

regulations and agreements also guide fisheries management action(s)/direction(s).

P Vegetation management — The standard or guide for these actions includes

coordinating/consulting with the FWS and U.S. Army Corps of Engineers, using ID

teams to establish practices concerning grazing, prohibiting grazing, restricting use or

closing sites where vegetation concerns exist, implementing travel and public use

plans, and implementing revegetation plans.
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Chapter IV – Components of an RMP

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P Wildlife management — The standard or guide for these actions includes an

interdisciplinary approach in preparation and implementation of the plan, coordination

of wildlife agencies such as the State game and fish departments and FWS, and

adherence to Reclamation policy, directives, and standards. Appropriate ESA

regulations, mitigation requirements, agreements, and other laws and regulations will

also guide the wildlife management action(s)/direction(s).

Lands and Land-Related.—

P Land management — The standard or guide includes the Federal Property and

Administrative Services Act of 1949 and 41 CFR 101-47, Section 204 of the FLPMA

of 1976 (43-USC 1714), Section 10 of the Reclamation Project Act of 1939, 43 CFR

429 – NEPA requirements and stipulations in Project authorization or other NEPA

actions; ID team recommendations; other identified laws, rules, and regulations; and

Reclamation policies, directives, and standards pertaining to land management.

P Roads/trails — Standard or guides include section 10 of the Reclamation Project

Act of 1939, existing agreements/contracts/permits, off-highway vehicle (OHV) rules

and regulations, appropriate construction guidelines and design standards, and ID team

recommendations.

P Travel/access — The standard or guide should be the Manual on Uniform Traffic

Control Devices (<http://mutcd.fhwa.dot.gov/>), Scenic Byways regulations and

criteria, Reclamation policy for OHV use (43 CFR 420), State and Federal OHV laws,

and ID team recommendations.

Other.—

P Concessions/special use permits — The standard should be covered by Reclamation’s

concession policy, directives, or standards and existing permit stipulations.

P Visual planning, management, development, enhancement, and rehabilitation — The

standard or guide is the FS or BLM Visual Management System.

P Air quality — The standard or guide should be to meet the appropriate air quality

standard for any activity in the management area pursuant to the State Department of

Environmental Quality standards and the Environmental Protection Agency.
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P Cultural/paleontological — Contacts include Reclamation cultural resources staff, the

SHPO, and Tribal Historic Preservation Officer (when designated). The standard or

guide is 36 CFR 60 and 36 CFR 800 and Reclamation manual(s).

P Fire suppression — The standard or guide is the National Fire Plan Web site at

<http://www.fireplan.gov>. Reclamation manuals, directives, handbooks, and other

documents related to this subject should be followed. Consultation with the

appropriate entities should be conducted.

P Geology/minerals/soils — The standard or guide includes identification of lands

withdrawn from minerals entry by a specific Public Land Order or Commissioner’s

memorandum; coordination with BLM (Interagency Agreement between Reclamation

and BLM 3-25-1983); coordination with the appropriate State division of oils, gas, and

mining; efforts to minimize disturbance and return mined-out pits to naturally

appearing contours with top soil and to revegetate to minimize soil loss and visual

impact; and preparation of a soil and moisture conservation program.

P Integrated pest management — The standard or guide is to coordinate with the State,

county, or other regulatory authority to control undesirable or invasive pests, establish

vegetative controls for soil-disturbing or wildfire activities, apply pesticides only after

Reclamation approval, and apply pesticides under direction of certified applicators and

according to label instructions. (Also see Integrated Pest Management Policy,

Directives, and Standards.)

The above-mentioned standards and guides are not intended to be a comprehensive list

of all the standards and guides that would be used to track the status of certain implementation actions. The examples are intended only to illustrate what kinds of standards 

and guides information might be included as part of the implementation component.

Each office will have to identify those standards and guides that apply to the individual

management action(s)/direction(s) identified in each respective RMP.

12. List of Preparers 

Listing those who had a part in preparing the document is an important recordkeeping effort. 

It is recommended that this be kept on an ongoing basis throughout the RMP process to avoid

leaving anyone off the list. To help in the organization of this list, the following categories are

recommended:

P ID team – These are the Reclamation employees who participated in the develop-ment

of the RMP. Each entity in the list should also include “Department of the Interior,”

and “Bureau of Reclamation,” ID team member’s name, position, and area of

expertise covered in the RMP.
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Chapter IV – Components of an RMP

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P Cooperating entity representatives – This should include the Federal, Tribal/ National,

State, county (or other entities), department, representative name, position, and area of

expertise covered in the RMP.

P Consultants under contract (reference contract number), if any – This should include

the name of the consulting firm(s), and consultant name(s), position(s), and area(s) of

expertise covered in the RMP.

13. References/Bibliography

This is the documentation of sources cited in preparing the RMP. It is recommended that

these be kept on an ongoing basis throughout the RMP process to keep everyone informed of

the sources cited.

P References – These should be in alphabetical order and in standard reference format. 

According to the Government Printing Office Style Manual (2000), there are many

styles available to bibliographers because there are many classes of documents. A

Government bulletin citation, according to one authority, would

be treated as follows:

Author’s name (if the article is signed); title of article (in quotation marks); the

publication (usually in italic), with correct references to volume, number, series,

pages, date, and publisher (U.S. Govt. Print. Off.).

Therefore, the example would read:

U.S. Department of the Interior, “Highlights in history of forest and related natural

source conservation,” Conservation Bulletin, No. 41 (serial number not italic),

Washington, U.S. Department of the Interior (or U.S. Govt. Print. Off.), 1997. 1 p.

(or p. 1).

Another Governmental periodical citation would read as follows:

Reese, Herbert Harshman, “How To Select a Sound Horse,” Farmers’ Bulletin,

No. 779, pp. 1-26 (1987), U.S. Department of Agriculture.

Clarity may be maintained by capitalizing each word in book titles, but only the first

word in the title of articles.
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Other examples are:

Preston W. Slosson, The Great Crusade and After: 1914–1928 (New York:

Macmillan, 1930).

Edward B. Rosa, “The economic importance of the scientific work of the

government,” J. Wash. Acad. Sci. 10, 342 (1920).

or:

Preston W. Slosson, The Great Crusade and After: 1914–1928 (New York:

Macmillan, 1930).

Edward B. Rosa, “The Economic Importance of the Scientific Work of the

Government,” J. Wash. Acad. Sci. 10, 342 (1920).

14. Glossary of Terms

Terms to be defined should be listed in alphabetical order, followed by their definitions.

If appropriate, the source of unusual and/or technical terms should be cited or may be

footnoted when used in the document.

15. Attachments/Appendices 

These include unique and important information that pertains directly to the RMP and should

be attached to or reside with the document. These could include studies, reports, inventories,

documents, tables, maps, figures, and photos determined important in understanding and

implementing the RMP. It is suggested that highly technical and lengthy reports not be

included as attachments/appendices; instead, refer the reader to the location where these types

of reports can be obtained.
Chapter

Supplemental Resource Management

V Plan Information

Introduction

Certain kinds of information can supplement the text of and add value to an RMP. Among

other things, graphics, GIS analysis and mapping, and photos, when used properly, can

support the decisions reached by the ID team and help the reader understand why certain

decisions were made.

Interdisciplinary Team Considerations

Key considerations can help the RMP ID team produce an RMP that the public can

understand and that managers feel comfortable in implementing. The ID team should

consider:

P Stating any base assumptions/rationales in the RMP at the outset. This can be

done in a Preface or in the main body of the document.

P Providing key definitions, particularly of such important concepts as baseline,

background, significant resources, local and regional management areas, Project, and

areas of impact. Key technical terms should also be defined (e.g., acre-feet, cubic feet

per second, jurisdictional wetlands, confined aquifer, and socio-demographics). (Also

see chapter IV on the location of the Glossary.)

P Characterizing the area by interactions, attempting to derive cause/effect. Causeand-effect relationships can be simple or complex. The magnitude of an

effect on a species may depend simply on the amount of habitat that is disturbed. 

Similarly, effects on archaeological sites may be quantified by enumerating the sites

that are disturbed. Other responses may be more complex. Socioeconomic

models can be applied in a similar way to determine the effects of changes in

immigration and emigration rates on the financial condition of a human

community.

P Using direct, nontechnical language, whenever possible, and placing an extensive

discussion of methodology in attachments or appendices. See Plain English Network

at <http://www.plainlanguage.gov./>.
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P Using specific methods to describe and analyze the environmental resources and

factors. Each specific resource ID team member will likely use a variety of methods to

not only describe the existing resource(s) but also to analyze resource impacts from

proposed alternatives.

P Characterizing specific, representative areas (collect and synthesize informa-tion). 

Suggestions are as follows:

R For each Project that warrants more detailed effects, review, select, and define a

geographic area that constitutes an area with definable boundaries to be studied

for impact. Conduct a literature search to identify major components of the

ecosystem, its former and existing condition (if different), and its specific functions

and values that could be affected by development. Seek out researchers who have

conducted or are conducting investigations that could prove helpful in

understanding specific resource functions, processes, and impacts.

R Document resource use of and reliance on the identified area. This can be based on

collecting, reviewing, and citing life history information for ecologically important

species; citing literature or habitat functions and values; and using life history and

habitat information to describe the use of the selected geographic area by species,

including food web relationships, shelter from predators, and other functions.

R Identify environmental indicators for the Project area, such as water quality,

sediment quality, or the presence of sensitive resources.

R Document possible anthropogenic sources of stress to the selected area

(e.g., pollutant inputs, changes to freshwater flow and salinity, habitat alteration

or destruction, and fishing pressure). Obtain historical information on habitat

loss or degradation because of permitted and unregulated activities.

P Providing a comprehensive list of abbreviations and acronyms at the beginning of

the RMP and NEPA document (as discussed in chapter IV of this guidebook).

P Attaching pertinent information as attachments to the RMP/NEPA document or as

a separate appendix. This information is intended to support the decisions reached in

the RMP. Examples of pertinent information include adjacent land use zoning

requirements and designations; strategic plan and/or goals and objectives of a

managing partner; codified rules and regulations of managing partner (e.g., rules for

managing public recreation on Reclamation lands); newspaper articles, past and

present; wildlife studies completed during RMP preparation; bird lists from the local
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Chapter V – Supplemental RMP Information

February 2003

Audubon Society; OMB-approved visitor use surveys; economic modeling outputs;

and visitation calculations (as recommended in chapter IV of this guidebook under “15. 

Attachments/Appendices”).

Following are suggestions for supplementing the above-mentioned considerations.

Graphics

One well-planned graphic display—whether it is a pie or bar chart or a pictorial representation—can often take the place of pages of narrative and make difficult or complex concepts

easy to understand. Graphic depictions should be regarded as an integral part of the

document, not as an adornment, and can include maps, graphs, figures, charts, line drawings,

diagrams, and others, including imaginatively conceived tables. The following, for example,

might be directly or dramatically described by graphic means:

P Surface water sources – These can be graphically depicted by actual locations and

dimensions (U.S. Geological Survey data) or shown in a graphic style, with the width

of the line showing the relative volume of the river or stream and the use of dashed

lines for intermittent streams.

P Reservoir fluctuations – These can be shown graphically by using a dark shade or

color for the dead pool area, a medium shade or color for the average annual

fluctuation area, and a light shade or color for the normal water surface area. Flood

elevation can be depicted as a light or colored line at the maximum flood elevation line,

with light diagonal lines between the flood elevation line and the light shade or color of

the normal water surface area.

P Boat ramp or trailhead accessibility – These facilities can be marked on a map using

standard recreation symbols (square with a symbol). Multiple symbols should be

aligned horizontally or vertically at each recreation site on the map.

P Dewatered stream sections – These can be shown with a dash and dotted line to depict

both location and duration. More dots can be added to depict longer and longer

periods of dewatering.

P Habitat changes – A simple way of identifying changes is to use medium colors or

shades to identify the different habitat types and then to draw a line around the area

that may or will be changed, using diagonal lines to fill in that area. 
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P Riparian corridors – These can be identified using a medium shade or color to

identify corridors (the lighter shade or color should allow other features to show).

P Various types of recreational use – The types of use are often depicted in bar graphs

or pie charts showing numbers and categories of use or percentages for each category

of use.

P Wetland areas – These areas are often depicted by using green symbols (small reeds,

grass, or others) repeated over and over to fill in the wetland area.

P Wildlife distribution and types – Distribution and types can be shown by pie charts or

bar graphs identifying each species and its population or percentage. These charts or

graphs can be placed on a map to show distribution and types over the management

area.

P Fishing/hunting as a piece of the recreation “pie” – This can be shown with a pie

chart or bar graph.

P Population trends – Trends are most often displayed on bar graphs that show numbers

on the vertical scale and time on the horizontal scale.

P Land use patterns or trends – These can be shown on bar graphs. Each classification

of land use can be shown by acres of land on the vertical scale and at different

increments of time (generally 1 to 10 years, depending on the rate of change) on the

horizontal scale. 

P Aquifer configuration/processes – These features can be presented by using various

shades to represent the configuration/process and overlaying it on a map (generally in a

CAD or GIS format).

Helpful graphics and approaches include:

P Process maps and flow charts – Charting physical, social, biological, and other

pertinent processes will help determine when events happen so temporal relationships

are revealed. It is effective to use rectangles or circles containing key words or phrases

and lines and arrows to connect the circles or rectangles to depict the processes.

P Influence diagrams – These can help brainstorm areas to examine. One overall

diagram and one for each resource can be developed with, for example, bubble

diagrams pointing or overlapping with other bubble diagrams to show relationships or

overlapping areas (words or phrases in the bubbles define the relationships or

influences).
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P Issue maps – Overlaying issues (e.g., endangered species concerns or water demands)

over a map of the area can provide an overall view of relationships between issues. 

The most accurate way to show these relationships is by using GIS and accurately

displaying each resource layer and its impact in tandem with other resources.

Cautionary notes: Graphics should be referenced in the narrative and briefly described,

as appropriate. If extensive explanation of the graphics is required, the graphics were

probably not well planned and should be revised or omitted. The location of cultural

resources is proprietary information and is prohibited from being shared with the general

public.

Useful graphics that could be used in either an RMP or NEPA document or an integrated

RMP/NEPA document follow (Example 1 – Conceptual Plan, Example 2 – Surface Water

Supply Diagram, Example 3 – Alternative Flow Releases, Example 4 – Vegetation and

Wildlife Habitat Zones, and Example 5 – Daily Flow Releases).

GIS Resource Mapping

Existing resources in the management area should be mapped and displayed in the RMP. 

Various naturally occurring phenomena and conditions may limit or influence human 

activity within the management area; one way to represent constraints on area resources is

through GIS mapping that can help identify those areas with limitations for development. 

Through its layering capability, GIS can also provide a tool to help determine if suggested

management actions outlined in the RMP might be compatible with existing land uses.

Through the use of GIS, the technical specialist can view differing resources in an

overlapping perspective among the Project resources. These relationships are on a base

information overlay that can consist of the topography, roads and highways, land and/or

Project boundaries, or even a combination of all of these, to provide the most concrete

understanding and perspective of the interactive nature of the Project resources. (See

attachment S for an examples of GIS maps.)

Two apparent benefits from the use of an interactive GIS system are the descriptive nature of

its data presentation for use as a decision support system and its ability to view both current

and historical data in support of public involvement issues. In the use of the baseline data,

resource inventory maps can be drawn to illustrate the integration of managing relationships

among the Project resources. Another use is to visually identify common elements of the

proposed RMP and any contentious areas among the managing entities and/or the public,

such as multiple uses, conflicting uses, exclusive uses, and encumbrances. 
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Example 1 – Conceptual Plan
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Example 2 – Surface Water Supply Diagram
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Example 3 – Alternative Flow Releases
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Example 4 – Vegetation and Wildlife Habitat Zones
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Example 5 – Daily Flow Releases
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February 2003

The GIS system can also be used as a descriptive tool to illustrate the proposed plan goals,

to describe what each of the management alternatives entails, and to depict any proposed

activities and improvements.

Manipulation and Analysis with GIS

A geographic information system is a system of hardware and software for inputting, storing,

manipulating, analyzing, updating, and displaying digital spatial data. Once digital

layers (or coverages) are input or encoded, they are ready for analyses and manipulation.

Digital layers can be stacked and used to generate new layers that answer questions

about the suitability of development based on the land capabilities of a geographic area or

spatial location. For example, spatial analyses could show the regions in a study area

that are suitable locations for a new campground based on soil, slope, geology, vegetation,

cultural resources, sensitive habitat, proximity to roads and water, and land ownership.

Since points, lines, and polygons have attribute data associated with them, tables can be

generated that show quantitative data such as acreage or lineal extent. This attribute

information can be transformed into models that show geographical areas that would be

inundated by water (measuring depth and duration) after a dam failure. These models would

show how far the water would extend and its depth in a given time after dam collapse.

CAD mapping can also be used to represent existing resources, but CAD may not have

extensive layering capabilities; it is recommended that CAD systems used to prepare maps

be compatible with GIS to allow easy conversion into a GIS format. The area office will

have to determine if GIS mapping meets its needs and if it can be achieved within current

funding levels.

Photography

Photos of different types of facilities, uses, and resource conditions can effectively

supplement the narrative description of such facilities, public and private uses, and resource

conditions in the RMP/NEPA document(s). Facilities that could be photographed include

restrooms, boat ramps, dams, day-use areas, parking lots, fishing platforms, and hunting

blinds. Uses that could be photographed include fishing, hiking, boating, swimming, illegal

camping, private exclusive use, utilities (powerlines, pipelines, and others), and OHV use. 

Resource conditions that could be photographed include shoreline erosion, borrow pits,

wetlands, damage caused by vehicles and pedestrian traffic, critical wildlife habitat,

vegetation, and topography (see accompanying photos and layouts taken for an RMP

on the following pages).
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An extensive network of roads and an expansive parking area

are found near the dam on the west side of Agate Lake. Disturbed

areas are colonized by star thistle and cheat grass.

Heavily impacted area on the west side of Agate Lake.
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Grasslands in the northwest section of the Lake Area

Boundary contain vernal pools.

Illegal OHV use such as this occurs throughout the

Lake Area Boundary.
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A small riparian forest has developed around Hopkins Canal as it

empties into Agate Lake.

Dry Creek upstream of Agate Lake supports a riparian community

dominated by willows, cottonwoods, and alders.
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Chapter V – Supplemental RMP Information

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Island Beach picnic ground (Deer Creek Reservoir).
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Main State Park area.

Photo Points Around the Management Area

Another use of photography is to establish key photo points around the management area. 

The specific location for each photo point should be identified on a map or in a written

description with pertinent camera information (i.e., lens settings, film type and speed, and

digital camera settings). These photo points act as a visual record over time and can be used

for monitoring. By taking the same photos from the same point every 1 to 5 years, visual

changes can be observed and documented in the monitoring reports.
Glossary

A

Absorptive capability – A detailed classification system used to denote the relative ability of a

landscape to accept human alterations without the loss of character of scenic quality.

Acquired lands – Lands that the Bureau of Reclamation has acquired by purchase, donation, exchange,

or condemnation.

Act (1890) reserved rights-of-way – Rights-of-way, for ditches or canals constructed by the authority of

the United States, were reserved in all patents issued on public lands west of the 100th Meridian

entered after August 30, 1890. (Patents are the initial conveyance of public lands from the United

States.) These reserved rights-of-way can be exercised either by Confirmation Deed, Right-of-Way

Notice, or through construction itself.

Annual Work Plan – Annual budget document that describes proposed work to be preformed at a

specific Bureau of Reclamation Project area and that details the amount

of funds required.

Area-wide management direction – Area management actions that apply equally to the entire

management area covered by a Resource Management Plan.

Authorized Reclamation Project – An approved Bureau of Reclamation Project that has been authorized

by Congress for specific purposes such as irrigation, flood control, municipal and industrial use,

recreation, and fish and wildlife.

C

Categorical exclusion – An environmental document covering routine activities that do not individually

or cumulatively have a significant effect on the human environment.

Code of Federal Regulations (CFR) – The annual cumulation of Executive agency regulations published

in the daily Federal Register, combined with regulations issued previously, that

are still in effect. They are divided into 50 titles, each representing a broad subject area. Individual

volumes of the CFR are revised at least once each calendar year and issued on a staggered quarterly

basis. The CFR contains the general body of regulatory laws governing practice and procedure

before Federal administrative agencies.

Contracting Officer’s Representative – The technical individual identified to oversee the day-to-day work

that has been contracted and to report performance to the Contracting Officer.

Council on Environmental Quality – Establishes regulations for implementing the procedural provisions

of the National Environmental Policy Act.
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D

Desired condition (RMP) – The future condition of the management area that results from achieving

the goals and objectives identified in a Resource Management Plan.

E

Environmental analysis – Systematic process for consideration of environmental factors in land

management actions. 

Environmental assessment – A National Environmental Policy Act compliance document used to

determine if an action would have a significant effect on the human environment. If not,

a finding of no significant impact is written. If so, an environmental impact statement is written.

Environmental impact statement (EIS) – A National Environmental Policy Act compliance document

used to evaluate a range of alternatives when solving a problem would have a

significant effect on the human environment. The EIS is more than a document, it is a formal

analysis process that mandates public comment periods. An EIS covers purpose and need,

alternatives, existing conditions, environmental consequences, and consultation and coordination.

Environmental report – Any report addressing environmental issues.

Executive order – A written directive of the President of the United States of America. 

F

Federal lands – Lands, or interests in lands (such as easements and rights-of-way), owned by the

United States.

Federal Register – A publication of the Federal Government that publishes actions and notices related

to Government activities.
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Finding of no significant impact – A written document that is prepared and attached to an environmental

report to indicate that the action identified has been determined to be nonsignificant.

G

Geographic information system – A digital geographic database used to analyze and store data.

Goal (RMP) – For the purposes of this Resource Management Plan Guidebook, a goal is a brief statement

describing the end result of implementing a management action or series

of actions. A goal also can be considered as a desired condition that the Bureau of Reclamation

wishes to achieve within the management area.

Government Performance and Results Act – Requires government agencies to account for work preformed

annually.

Government Printing Office – The official authorized printing office of the United States Government.

I

Interdisciplinary team – A team composed of specialists in different areas of expertise who can address

a broad range of issues related to various actions.

Issue category – A series of similar issues that have been titled to reflect the nature of the issue(s) and

grouped to facilitate the development of Resource Management Plan goals and objectives.

J

Jurisdiction – A term used to describe the level of management responsibility an entity has for a

specific area using its rules and regulations.

Jurisdictional wetlands – The Clean Water Act defines wetlands as those areas that are inundated or

saturated by surface or groundwater (hydrology) at a frequency and duration sufficient to support,

and that under normal circumstances do support, a prevalence of vegetation (hydrophytes) typically

adapted for life in saturated soil conditions (hydric soils). Wetlands generally include swamps,

marshes, bogs, and similar areas. Jurisdictional wetlands are those that are regulated by the United

States Corps of Engineers under

section 404 of the Clean Water Act.
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M

Management – A term used to describe a level of management responsibility that has been delegated

to another entity through a management agreement initiated by the entity that has jurisdiction over

the lands being transferred.

Management area – Described as a geographic or study area that can be effectively managed as a

relatively independent area. Project and management areas are not necessarily synonymous because

there can be several management areas within a project. A manage-ment area may be a reservoir

area, wildlife area, or canal, or an area that has similar problems or issues.

Monitoring (RMP) – An established strategy that is developed to track the progress of implementing

the management actions identified in a Resource Management Plan.

N

Notice of Intent – A written document generally published in the Federal Register that discloses an action

to be taken by a Federal agency.

O

Objective (RMP) – A statement or series of statements that briefly describe an action that will achieve

a specific goal identified in a Resource Management Plan (RMP). Specific management actions are

developed from RMP objectives.

Off-highway vehicle – Any vehicle that travels off designated roads or trails.

P

Plan component – A unique and complete part that makes up a plan.

Project facilities – Canals, laterals, drains, pumps, buildings, etc., owned by the United States.

Note: Title to project facilities and lands remains in the United States until specific legisla-tion is

enacted to authorize disposal (regardless of who is responsible for care, operation, and maintenance

of the facilities).
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Glossary

February 2003

Project purposes – Lands are withdrawn and acquired for authorized purposes of the specific project,

including irrigation, flood control, recreation, and fish and wildlife.

Public Involvement Plan – A document that outlines the processes for involving the public in a given

action.

Public Land Order – An action on Federal lands to withdraw it from public use for a specified

purpose.

Public lands – Public lands include only those Federal lands administered by the Bureau of Land

Management (with the exception of lands located on the Outer Continental Shelf and lands held for

the benefit of American Indians, Aleuts, and Eskimos).

Public Law – A law passed by the Congress of the United States of America.

R

Reclamation Project Lands – Federal lands or interests in lands under the jurisdiction of the Bureau of

Reclamation (Reclamation), including withdrawn lands, acquired lands, and

1890 Act reserved rights-of-way that have been exercised. Note: Reclamation Project Lands are not

the same as public lands. Reclamation Project Lands were initially withdrawn, acquired, or exercised

for specific project purposes and are governed by different Federal land management laws and

regulations than public lands. Public uses of Reclamation Project Lands can be suspended as

necessary to protect project facilities, and Reclamation Project Lands are not open to off-road

vehicles unless specifically opened for that use.

Reclamation zone or Primary Jurisdiction Area – Area located immediately around a dam that is used

primarily for Bureau of Reclamation Project purposes.

Recreation opportunity spectrum – A system for evaluating lands and resources for appropriate recreation

use.

Relinquishment – Notification to the Bureau of Land Management by a Federal agency (like the

Bureau of Reclamation) that specific withdrawn lands are no longer needed for project purposes.

Research natural area – An area that has unique ecosystems and great diversity of plant or animal

communities.
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Reserved works – Those project facilities for which the care, operation, and maintenance has been

retained by the United States.

Resource Management Plan – A written plan that addresses the existing resources of an area and

provides future objectives, goals, and management direction.

Restoration – An action by the Bureau of Land Management that restores withdrawn lands to the

status of unreserved public lands subject to settlement, sale, location, or entry under some or all of

the general land laws.

Revocation – The actual cancellation of a withdrawal of land by the Bureau of Land Management. 

The land is then restored to public land status.

S

Section 7 compliance – Refers to consultation with the U.S. Fish and Wildlife Service on endangered

species issues related to an action.

Site-specific management action – Management actions that apply specifically to a portion of the

management area covered by a Resource Management Plan. Site-specific areas lend themselves to

unique resource management.

Standards and guides – Written standards and guidelines prepared by Federal and State agencies

outlining how work is to be accomplished and actions that need to be taken.

State Historical Preservation Officers – Individuals that need to be consulted on National Historic

Preservation Act and Native American Graves Protection and Repatriation Act issues.

Statement of work – A written document that clearly outlines work to be accomplished, estimates

costs, and establishes dates for completion.

Stewardship – Responsibility of land management entities to manage public lands under their

respective jurisdictions for the public good using sound land management principles, practices,

procedures, and guidelines and to meet the mission statement goals and objectives of each entity in

the context of existing laws, regulations, policies, and Executive orders.

Strategic plan – A written plan outlining a government agency’s framework for management.

Study area – A large area around a management area that has an influence on the resources within

that management area.
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T

Technical Service Center – An office of the Bureau of Reclamation in Denver, Colorado, that provides

professional technical services.

Tiering – The coverage of general matters in a broad National Environmental Policy Act document

with subsequent narrowly focused documents; it helps to eliminate repetitive discussions and allows

the site-specific documents to focus on specific issues.

Traditional cultural properties – A site or resource that is eligible for inclusion in the National Register of

Historic Places because of its association with cultural practices or beliefs of a living community.

Transferred works – Those project facilities for which the care, operation, and maintenance has been

transferred from the United States to irrigation districts.

Tribal Historic Preservation Officer – Tribal official who must be consulted on National Historic

Preservation Act and Native American Graves Protection and Repatriation Act issues.

U

United States Code – The written directives for public law.

W

Water Recreation Opportunity Spectrum – A system for evaluating water resources for appropriate

recreation use.

Wilderness resource – Resources identified in officially designated wilderness areas on

U.S. Forest Service or Bureau of Land Management administered land.

Withdrawn lands – Withholding of an area of public land from settlement, sale, location,

or entry under some or all of the general land laws to (1) limit activity under those laws to maintain

other public values in the area, (2) reserve the area for a particular public purpose or program, or (3)

transfer jurisdiction of the area from one Federal agency to another.

Work Plan – Plans that detail the scope, direction, and purpose of a proposed Resource Management

Plan.
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Z

Zoning – Identification of areas of specified uses or restrictions.