Contents

From the Director . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Background and Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Vision and Mission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

Guiding Values and Principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Goals, Objectives, and Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

 Goal 1: Staff and Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

 Goal 2: Guidance and Tools . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

 Goal 3: Practitioner Networks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

 Goal 4: Data and Reporting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

Acknowledgments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Inside Back Cover
The BLM’S NATIONAL STRATEGY and IMPLEMENTATION PLAN TO SUPPORT and ENHANCE PARTNERSHIPS 2014–2018

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From the Director

On behalf of the Secretary of the Interior and the Bureau of 

Land Management (BLM), I am pleased to present our agency’s 

National Strategy and Implementation Plan To Support and 

Enhance Partnerships, 2014–2018.  This is the BLM’s first national 

partnership strategy, and it was developed in cooperation with our 

partner organizations and stakeholders, all of whom contributed ideas and suggestions.  The 

resulting national framework will advance and strengthen partnerships across the agency.

As the nation’s largest land manager, the BLM faces tremendous challenges every day.  However, we 

do not face these challenges alone. Our friends and partners work with us to improve rangeland 

health, guard fragile biological and cultural resources, support a wide array of recreational activities, 

and tackle other shared goals.  Our partners—whether they are national organizations, tribes, 

community associations, friends groups, or other government agencies—make a difference in 

everything we do.

The BLM looks forward to working with our many excellent partners to fully implement this 

strategy over the next 5 years.  

Neil Kornze

The BLM’S NATIONAL STRATEGY and IMPLEMENTATION PLAN TO SUPPORT and ENHANCE PARTNERSHIPS 2014–2018

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Introduction

The Bureau of Land Management (BLM) has long depended on working with others, through 

partnerships, to enhance public lands and to carry out its multiple-use mission. Meaningful 

engagement with partners is helping ensure that federal decisions and efforts reflect the interests 

of affected communities while accomplishing shared or complementary goals. Moreover, as federal 

budgets and staffs shrink, partner assistance is becoming an especially vital factor in the stewardship 

and management of public lands.

BLM partnerships are truly cross-cutting, occurring at all levels of the agency and in key program 

areas, such as fire management, energy development, conservation of wildlife and cultural resources, 

and recreation. Local volunteer organizations and friends groups are a thriving partnership force, 

lending far-reaching assistance to the BLM and, in particular, the National Landscape Conservation 

System. At a broader, landscape level, a great array of different partners with innovative ideas is 

helping the BLM deliver model land-management programs.

The diversity of resources on 245 million acres of BLM public lands provides a similar wealth of 

opportunities for the BLM and interested organizations, businesses, educational institutions, 

agencies, tribes, and individuals to collaborate and to explore new approaches to land management 

for the benefit of present and future generations.

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The following definitions 

are adapted from the 

DOI’s Partnership Policy 

(301 DM 5):

PARTNER – an umbrella, 

generic term to refer to 

individuals, organizations, 

agencies, tribes, and/or 

other entities interacting in 

a relationship (partnership) 

with the BLM, to achieve 

common goals of both the 

partner and the BLM. 

PARTNERSHIP – a voluntary 

and mutually beneficial 

collaborative relationship 

between the BLM and one 

or more partners. It is built 

on the contributions of 

each partner and formed 

to achieve, or to assist in 

achieving, a common goal. 

Background and Development

The challenges of conservation increasingly require a partnership approach—and one in which 

the federal government becomes a better partner. This objective found voice in America’s Great 

Outdoors Initiative, started by President Obama. A similar direction was described in Executive Order 

13352, “Facilitation of Cooperative Conservation,” issued by George W. Bush in 2004, and in the 2008 

Partnership Policy of the Department of the Interior (DOI), 301 DM 5.

While individual BLM offices have a history of collaboration and partnerships, an agencywide 

emphasis on partnerships has been limited until recently. The Challenge Cost Share (CCS) program 

is one of the earliest examples of a nationwide BLM partnership effort, predating the directives 

described above. Established in 1985 with a congressional appropriation of $300,000, the program 

has expanded from its original wildlife focus to include range, forestry, recreation, and cultural 

resource management. CCS requires the BLM and diverse partners to work together and leverage 

funding to accomplish mutually beneficial objectives. Relying on contributions from multiple sources, 

the BLM has leveraged $171 million in federal funds at a 1:1 or better match to create more than $346 

million in funding for high-priority work.

Service First—another nationwide partnership example—has 

improved customer service by providing central locations for 

the public to obtain permits, pay fees, and gather information 

concerning the activities of four agencies—the BLM, U.S. Forest 

Service, National Park Service, and U.S. Fish & Wildlife Service.

Piloted in 1997 and permanently authorized in 2012, Service First 

allows these agencies not only to manage activities jointly but also 

to share staff, office space, and resources. The BLM participates in 

Service First offices in Oregon, Colorado, and elsewhere.
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Over the years, the BLM has found different ways to invest in partnerships. In 1995 the Partnership 

Series was developed and began offering employees and partners a suite of seven training courses 

to help build the skills necessary to meet land stewardship goals through collaboration and 

partnerships. More than 2,000 people participated in these courses through the BLM’s National 

Training Center (NTC). Similarly, the BLM created various desktop guides, including one for 

collaborating with nonprofit organizations and another for building relationships and coordinating 

with local, state, and federal cooperating agencies.  The BLM also developed the Managing by 

Network training program for federal employees to build their 

partnership and community collaboration skills and to learn from 

one another’s experiences across the country. Multiple agencies, 

and more than 225 land managers, have benefited from this 

unique, distance-learning program.

In 2010 the BLM hired a national partnerships program lead to 

strengthen and improve partnership efforts across the BLM. This 

position also works with other Department representatives on a 

working group that shares best practices and seeks solutions to 

common partnership challenges. 

Through several awards programs, the BLM continues to highlight 

and express its appreciation for outstanding partnerships that 

have produced notable results for the public lands and the 

American people. The Public Lands Partnership Excellence Award and the BLM Director’s Excellence 

Through Stewardship Award are two such national recognition programs. In addition, many BLM-led 

partnerships have received a Partners in Conservation Award, one of only a few categories of honor 

awards presented by the Secretary each year.

The partnership strategy and implementation plan described in this booklet tier from the 

Department’s Partnership Policy and will provide a foundation for improved coordination and 

support of BLM partnerships during 2014–2018. The BLM intends to focus on staff and training, 

guidance and tools, practitioner networks, and data collection and reporting.

Staff, partners, and stakeholders contributed ideas to this strategy and implementation plan at 

various meetings, including the national session that led to a separate strategy for the National 

Landscape Conservation System. BLM employees representing a range of BLM offices and programs 

then incorporated this input into a draft. Four smaller teams continued to refine the draft for broader 

review throughout the BLM. The many excellent comments that were received from staff at all levels 

of the BLM are reflected in this final version.
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Vision and Mission

Partnerships Program Vision:

The BLM and diverse partners share stewardship 

responsibilities in overseeing the nation’s public lands and 

mineral estate. The BLM embraces partnerships as integral 

to achieving its mission.

Partnerships Program Mission:

The BLM seeks to advance, strengthen, and support 

the use of partnerships nationwide to improve the 

management, stewardship, and public enjoyment 

of the nation’s public lands on a continuous basis.

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Guiding Values and Principles 

g Partnerships are integral to achieving the BLM’s mission and add value for both the 

BLM and its partners.

g Successful partnerships reflect a shared vision, trust, transparency, and good communication.

g Partnerships should use collaborative processes, within legal constraints.

g The BLM celebrates the diversity of partners that engage with the BLM in managing the public 

lands, and values the contribution of their individual strengths and perspectives.

g The BLM values and respects its partners’ organizational cultures.

g BLM staff value their relationships with partners beyond the products and services 

that partnerships produce or deliver.

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Goals, Objectives, and Actions

GOAL 1: Identify and Focus Staff and Training Resources To 

Advance and Support Partnership Activities across the BLM

Background/Rationale:

Many individuals in the BLM community possess a wealth of knowledge and expertise relevant 

to the development and management of successful partnerships. By establishing a framework 

for coordinating and supporting partnership efforts agencywide, and by offering training to staff 

and partners to enhance their skills and competencies, the BLM can strengthen and advance its 

partnership efforts.

Objective 1.1: Establish a framework at the national level for coordinating 

and supporting partnership efforts.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

1.1.a. Establish an 

interdisciplinary National 

Partnerships Working Group 

composed of staff from all 

levels of the organization 

(i.e., WO, state offices, 

and field offices) to help 

facilitate and support BLM 

partnerships nationally and 

to guide partnership efforts 

at the national level.

National Office 

(WO-420)

National Office 

(WO-420); state 

offices; field 

offices

Year 1 Team 

established; 

list of team 

members, 

purpose and 

objectives, and 

membership 

and 

organization 

documented
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Objective 1.2: Establish a framework at the field level for coordinating and 

supporting partnership efforts.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

1.2.a. Designate a point of 

contact (POC) within each 

state office to help facilitate 

and promote partnerships 

and to provide statewide 

coordination on national 

data calls.

State offices State offices Year 1 List of 

designated state 

office POCs 

completed

1.2.b. Develop state teams 

to help support state POCs 

and partnership efforts and 

to facilitate peer-to-peer 

networks for sharing of best 

practices. Team members 

may include field staff 

experienced in working with 

and supporting partnerships.

State offices State offices Year 2 Teams 

established
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Objective 1.3: Strengthen the partnership skills and competencies of BLM 

staff and partners to develop and sustain successful partnerships.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

1.3.a. Establish a set of 

core partnership and 

collaboration competencies.

National Office 

(WO-420)

National Office 

(WO-420 & 

WO-700); NTC

Year 1 List of 

competencies 

established; 

guidance issued

1.3.b. Identify, centralize, 

and promote existing 

partnership training 

opportunities for BLM staff 

and partners.

National Office 

(WO-420)

National Office 

(WO-420); NTC; 

state offices; 

field offices

Year 1, and then 

ongoing

List of training 

opportunities

1.3.c. Deliver and expand 

the Managing by Network 

training program, and 

develop new learning tools 

(e.g., video, electronic 

forums) to improve network 

training for participants and 

refreshers for alumni.

National Office 

(WO-420); NTC

National Office 

(WO-420); NTC

Year 1, and then 

ongoing

Training 

delivered and 

new tools 

developed

1.3.d. Conduct a training 

needs assessment to identify 

who needs to be trained 

and which partnership 

competencies to emphasize 

during training.

National Office 

(WO-420); NTC

National Office 

(WO-420); NTC

Begin year 2; 

complete year 3

Assessment 

results 

documented

1.3.e. Develop partnership 

training instruments to 

address identified needs, 

including:

• partnership modules 

for integration into the 

BLM’s core/major training 

programs and orientation 

curricula (e.g., Pathways, 

leadership training)

• a “nuts and bolts” course 

or module series that 

comprehensively covers 

the key aspects of 

building and sustaining 

partnerships and that 

highlights partnership 

and collaborative best 

practices

National Office 

(WO-420)

National Office 

(WO-420); state 

offices; field 

offices

Years 3–5 Training tools, 

resources, 

modules 

identified/

developed
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GOAL 2: Develop, Streamline, and Standardize Guidance and 

Tools To Support BLM Partnerships

Background/Rationale:

The BLM has long relied on partnerships at every level to carry out its multiple-use mission.

The tools and resources available to develop and sustain these partnerships, however, are not 

centralized and have been subject to multiple interpretations, resulting in confusion among staff 

and partners. The America’s Great Outdoors Initiative has emphasized the importance of making 

the federal government a better partner. By clarifying policy and guidance, and consolidating 

and/or developing tools, the BLM can take a major step forward in developing and sustaining vital 

partnerships.

Objective 2.1: Develop and refine guidance, as needed, to assist the BLM 

with initiating and sustaining partnerships.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

2.1.a. Consolidate and 

make accessible existing 

partnership policy and 

guidance.

National Office 

(WO-420)

National Office 

(WO-420)

Begin year 1; 

complete year 2

Existing policy 

and guidance 

organized in one 

location

2.1.b. Conduct internal 

review of existing policy and 

guidance, and determine 

whether additional 

guidance, clarification, or 

both are needed.

National Office 

(WO-420)

National Office 

(all directorates); 

state offices

Year 2 Internal review 

completed; 

results 

documented

2.1.c. Update or develop new 

guidance, as needed, on the 

following:

• new or modified 

authorities

• appropriate instruments to 

use in support of various 

types of partnerships

• acceptance, use, and 

solicitation of donations 

to the BLM; donor 

recognition

• ethical sideboards for 

agency staff at all levels 

who are engaged in 

partnership activities

• other topics identified in 

needs assessment

National Office 

(WO-420)

National Office 

(primarily 

WO-420, 

WO-800, & 

WO-700; input 

from other 

directorates)

Years 2–5 Guidance issued

 
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Objective 2.2: Identify and promote existing partnership tools, and revise 

or develop additional tools, to foster effective partnerships. 

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

2.2.a. Identify existing 

tools to assist BLM staff 

and partners in developing 

and sustaining successful 

partnerships.

National Office 

(WO-420, 

WO-800, & 

WO-700); NTC

National Office 

(WO-420, 

WO-800, & 

WO-700); NTC; 

input from state 

offices and field 

offices

Year 1 Inventory of 

existing tools 

and resources 

completed

2.2.b. As part of the training 

needs assessment (see action 

1.3.d.), determine what 

additional tools are needed 

for BLM staff to facilitate 

effective partnerships.

National Office 

(WO-420)

National Office 

(WO-420, 

WO-800, & 

WO-700); NTC; 

state offices; 

field offices

Begin year 2; 

complete year 3

Assessment 

results 

documented

2.2.c. Develop additional 

tools identified through 

needs assessment.

National Office 

(WO-420)

National Office 

(WO-420)

Year 2, and then 

ongoing

Tools developed
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2.2.d. Update, as needed, 

and consolidate partnership 

tools and resources in a 

web-based guidebook on 

fundamentals of partnership 

development and 

implementation, including: 

• decision support tools 

for selecting the right 

partnership and funding 

agreements

• procurement checklists 

and step-by-step “how to” 

flowcharts

• agreement templates 

to support partnership 

efforts

• standards and techniques 

for fund transfers under 

existing agreements

• skills-building resources

• training opportunities

• funding opportunities, 

including information 

on Challenge Cost Share 

program 

• examples of innovative 

and successful 

partnerships that meet 

legal requirements as well 

as BLM and partner needs

• links and other 

information to facilitate 

improved partnership 

capacity

National Office 

(WO-420 & 

WO-800)

National Office 

(input from all 

directorates); 

state offices; 

field offices

Years 2–5 Web-based 

guidebook 

developed

2.2.e. Consolidate and 

provide appropriate tools 

and resources for partners 

on the BLM’s website.

National Office 

(WO-420)

National Office 

(WO-420) 

Year 2, and then 

ongoing

Partnership 

aspect of 

BLM website 

developed
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GOAL 3: Develop and Support Practitioner Networks To 

Maintain and Sustain Successful BLM Partnerships

Background/Rationale:

The BLM’s long-standing efforts in accomplishing its work through partnerships have produced 

a dispersed cadre of experienced partnership practitioners throughout the BLM and across 

programs. By further developing this network of practitioners—or “community of practice”—

through enhanced communication, forums, and opportunities to share and leverage expertise, and 

by recognizing and promoting partnership successes, the BLM will help strengthen and advance 

partnership success.

Objective 3.1: Foster, support, and nurture partnership practitioner 

networks.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

3.1.a. Identify, promote, and 

develop networking and 

peer-to-peer partnership 

capacity-building and 

learning opportunities 

for BLM managers, staff, 

partners, and communities 

of practice through:

• training programs

• expertise- , experience- , 

and idea-sharing forums

• mentoring opportunities 

and informal exchange 

systems 

National Office 

(WO-420)

National Office 

(input from all 

directorates); 

NTC; state 

offices; field 

offices

Year 2, and then 

ongoing

Number 

and type of 

networking 

opportunities 

(e.g., 

conferences, 

training and 

peer-topeer forums, 

workshops, 

web platforms, 

social media, 

mentoring 

and exchange 

relationships) 

identified, 

promoted, and 

developed 
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Objective 3.2: Highlight and promote BLM partnerships and communicate 

best practices internally and externally.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

3.2.a. At all organizational 

levels, use diverse 

communication approaches, 

such as websites, social 

and news media, and other 

forums, to showcase and 

promote partnership success 

stories and best practices 

and to link the community 

of partnership practitioners 

more effectively.

National Office 

(WO-420 & 

WO-600)

National Office 

(WO-420 & 

WO-600); state 

offices; field 

offices

Year 1, and then 

ongoing

Individual 

products used 

to improve 

communication 

and visibility 

of partnership 

successes

3.2.b. Develop webpage 

templates for partnership 

websites at the national and 

state level.

National Office 

(WO-420 & 

WO-600)

National Office 

(WO-420 & 

WO-600); state 

offices

Year 2 Templates and 

web content 

developed

Objective 3.3: Recognize, showcase, and promote partnership innovation, 

excellence, and achievements throughout the BLM.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

3.3.a. Promote and 

encourage participation 

in existing Department, 

BLM, and other partnership 

recognition and awards 

programs.

National Office 

(WO-420)

National Office 

(WO-420); state 

offices; field 

offices

Year 1, and then 

ongoing

Guidance issued 

on awards 

programs; 

increased 

percentage of 

partnerships 

recognized 

3.3.b. Elevate the recognition 

of successful partnerships 

through the BLM Director’s 

Awards Program.

National Office 

(WO-420 & 

WO-600)

National Office 

(WO-420, 

WO-200, & 

WO-600); state 

offices

Year 2 Stronger 

partnerships 

emphasis 

integrated into 

the Director’s 

Awards Program

3.3.c. Develop state 

recognition programs 

for staff who develop 

and sustain successful 

partnership initiatives.

State offices State offices Year 2 State 

recognition 

programs 

established
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GOAL 4: Identify Data Needs and Systematically Report on 

the Accomplishments of BLM Partnerships

Background/Rationale:

The BLM is frequently called on to provide data about partnerships to decisionmakers in the 

agency, throughout the administration, and on Capitol Hill. The leverage that the BLM gains from 

partner contributions and that it uses to accomplish mutual goals is a major piece of data that 

the BLM needs to convey. It is unclear, however, whether data collected under existing systems 

are complete and whether they are sufficient to reflect partner contributions and to support 

decisionmaking effectively. The BLM will identify, assess, and modify current data collection 

systems to create a consistent process for gathering and using more complete and accurate 

information about the effectiveness and accomplishments of BLM partnerships.

Objective 4.1: Determine data collection needs and uses.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

4.1.a. Determine the 

data needed to keep key 

stakeholders informed 

and to reflect partnership 

accomplishments more 

accurately.

National Office 

(WO-420)

National Office 

(all directorates); 

state offices

Year 1 Data needs 

identified

 

Objective 4.2: Inventory current data collection systems to identify gaps. 

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

4.2.a. Develop a list of the 

systems and means currently 

in use to collect data on 

partnerships (e.g., Recreation 

Management Information 

System).

National Office 

(all directorates)

National Office 

(all directorates); 

state offices; 

field offices

Year 1 List of current 

systems 

documented

 
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Objective 4.3: Fill in data gaps with new information collections 

as needed.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

4.3.a. Determine the data 

that need to be consolidated 

and reported at the national 

level, and ensure processes 

are in place to capture the 

data.

National Office 

(WO-420)

National Office 

(WO-420); state 

offices

Year 2 Data collection 

instruments 

and processes 

established

Objective 4.4: Convey data about partnership effectiveness and 

accomplishments in an annual report to stakeholders.

ACTION LEAD(S) COORDINATING 

OFFICE(S)

TARGET DATE(S) MEASURABLE 

OUTPUT(S)

4.4.a. Provide an annual 

report for internal and 

external audiences on 

the effectiveness and 

accomplishments of the 

BLM’s Partnerships Program.

National Office 

(WO-420)

National Office 

(WO-420); state 

offices

Year 3, and then 

ongoing

Report 

developed
Acknowledgments

The BLM Division of Education, Interpretation, and Partnerships would like to thank the many BLM 

employees, partner organization representatives, and public lands stakeholders who contributed to 

the development and production of this strategy and implementation plan. 

For more information on the BLM’s Partnerships Program, please visit www.blm.gov/education.

Additional copies of this publication may be obtained by calling (202) 912-7457 or by writing to:

BLM Division of Education, Interpretation, and Partnerships

1849 C Street, NW, LM-2134

Washington, DC 20240

Design, layout, editing, and printing by the BLM National Operations Center, Denver, CO.

BLM/WO/GI-14/001+1104