Recreation Recreation

And Visitor Services And Visitor Services

Strategy Strategy

California California

BLM 

California State Office, Sacramento 
 

 

United States Department of the Interior 

BUREAU OF LAND MANAGEMENT 

California State Office 

2800 Cottage Way 

Sacramento, California 95825 

http://www.blm.gov 

June 10, 2008 

In Reply Refer to: 

8300 (CA-930) 

Dear Interested Party, 

Thank you for your interest in the California Recreation and Visitor Services Strategy. This statewide strategy is intended to integrate with the benefits based management framework and assist in 

the implementation of the national work plan. 

The strategy defines and prioritizes actions to target resources for effective program implementation. 

It is focused on three basic components of recreation opportunities on BLM public lands: 1) types of 

recreation opportunities and experiences that can be provided, 2) the character of recreation settings 

within which they occur and retaining that character, and 3) services that can be provided by the 

BLM and its collaborating partners. It is based on the objectives established in the national workplan 

(the “Purple Book”). 

If you have any questions about the strategy or the information provided in this document is unclear, 

please do not hesitate to contact the appropriate Field Office or: 

Michael Ayers, Outdoor Recreation Program Lead 
 


Bureau of Land Management
 
 

2800 Cottage Way, W-1928 
 


Sacramento, CA 95825 
 


916-978-4644 
 


email at: mayers@blm.gov 
 


Sincerely, 

 Mike Pool 

State Director, BLM California 
Bureau of Land Management 
 


California Recreation Program 
 


Mission Statement 

BLM California recreation will; through innovative partnerships, stakeholder commitment, 

and community-based collaboration; maintain the valued recreation opportunities, desired 

landscape settings and public land health ensuring long-term ecological sustainability while 

providing benefits to visitors, communities, and the natural and cultural environment. 

Acknowledgement 

The framework for this Strategy was developed by BLM Colorado where many of the concepts for benefits based management originated. 

Bureau of Land Management • California State Office 
 


2800 Cottage Way – W1928, Sacramento, California 95825 • www.ca.blm.gov
 
 
 

TABLE OF CONTENTS
 
 

Introduction Page 1 

Why a BLM California Recreation Strategy? 2 
 

Complementing the BLM 3 
 

What’s Changed that Requires a Strategy? 3 
 

What’s Going to be Different? 6 
 

Goals for the Strategy 6 
 

Taking Stock 6 
 

Recreation and Tourism in California 8 
 

Resource Impact Concerns and Challenges 9 
 

BLM Authorities in Managing Recreation 11 
 

Strategy Framework 11 
 

Management Objectives and Associated Actions 11 

 Objective 1 – Manage for Recreation Experiences and Quality of Life 11 

 Objective 2 – Encourage Sustainable Travel/Tourism Collaborations 13 

 Objective 3 – Fair Value and Return through Fees and Commercial Services 13 

 Objective 4 – Establish a Comprehensive Approach to Travel Management 15 

 Objective 5 – Public Health and safety and Improve Accessibility 16 

 Objective 6 – Enhance and Expand Visitor Services 17 

 Objective 7 – Encourage and Sustain Collaborative Partnerships 18 
 

Time for Action 19 
 

BLM Abbreviations 21 
 

Photos 22 
 

APPENDICIES
 
 

1 - Glossary 23 
 

2 - BLM Authorities for Managing Recreation 29 
 

3 - Federal Lands Recreation Enhancement Act 32 
 

4 - BLM Field Office Boundaries Map 35 
 
C ALIFORNIA R ECREATION AND V ISITOR S ERVICES S TRATEGY 

Introduction 

The Bureau of Land Management (BLM) administers 258.2 million acres of America’s 

public lands, located primarily in 11 western states and Alaska. The BLM manages over 

15 million acres in California alone, providing recreation opportunities for over 9.5 million 

visitors annually. Among the many recreation areas that BLM California manages are 

Special Recreation Management Areas (SRMAs) and National Landscape Conservation 

System (NLCS) units. These latter units include Carrizo Plain National Monument, Santa 

Rosa/San Jacinto Mountains National Monument, California Coastal National Monument, 

California Desert Conservation Area, King Range National Conservation Area, Piedras 

Blancas Light Station Outstanding Natural Area, 82 designated Wilderness Areas 

(3,725,000 acres), 74 Wilderness Study Areas, four scenic and historic trails, and nine 

designated Wild and Scenic river segments. 

Outdoor recreation is as much a part of California as the coastline, forests, valleys, lakes, 

rivers, and mountains that shape the state. The BLM is a big part of that recreation, 

providing opportunities for off-highway vehicle use, camping, hiking, driving for pleasure, 

picnicking, hunting, whitewater boating, wildlife viewing, and a variety of other pursuits. 

Californians look to outdoor recreation for relaxation and natural values and BLM lands 

play an important role in connecting people to nature and to each other. The Park and 

Recreation Trends in California, published by California State Parks, identified a number of 

factors important to Californians for enjoyment of the outdoors. 

Being able to relax 

Feeling safe and secure 

Being in the outdoors 

The beauty of an area 

Getting away from crowded situations 

Releasing or reducing tension 

The quality of the natural setting 

Being with family and friends 

Doing something that children enjoy 

Having a change from the daily routine 

Keeping fit and healthy 

Californians will continue to enjoy the outdoors and the activities in which they currently 

participate will continue to grow in popularity as the population of the state grows In 

particular, population increases in Southern California, as well as Redding, Ukiah, Folsom, 

and Hollister will place additional demands on recreational use of BLM lands. Also, the 

outlook for other forms of outdoor recreation, such as geocaching and visiting nature 

centers will see increases in popularity. 
 

C ALIFORNIA R ECREATION AND V ISITOR S ERVICES S TRATEGY 

Why a BLM California Recreation Strategy? 

The Bureau’s vision is “to enhance the quality of life for all citizens through the balanced 

stewardship of America’s public lands and resources.” BLM manages diverse lands and 

programs of which recreation has developed into a major use of those lands, comparable 

to range, minerals, and realty. This strategy, while focusing on recreation, must be viewed 

as only one aspect of many 

composing the BLM’s multiple-use 

mission. Recreation is not necessarily 

appropriate on all lands that BLM 

manages. However, the program is 

an expanding endeavor, is important 

to California residents and visitors, 

and requires a strategic approach. 

The BLM Recreation and Visitor 

Services Program is focused on three 

basic components of recreation 

opportunities on public lands: 1) 

types of recreation opportunities and 

experiences that can be provided, 2) 

the character of recreation settings within which they occur and retaining that character, 

and 3) services that can be provided by the BLM and its collaborating partners. Obviously, 

the BLM is not the only provider of recreation experiences and benefits. Therefore, BLM 

strives to develop collaborative partnerships with other land management agencies, state 

and local governments, recreation service providers, and a host of interest groups and 

individuals to provide a complete spectrum of recreation opportunities. 

The recreational use of California’s public lands and its management by the BLM continue 

to undergo significant changes. These changes are multi-dimensional, involving population 

demographics, related changes in consumer demands and use, advances in state-of-theart leisure science, improved technology, competing uses, and updated recreation tourism 

policy. The purpose of this strategy is to improve BLM California’s responsiveness to these 

changing conditions and leverage its resources and staff in the process. 

While this strategy sets neither recreation management objectives nor specific program 

actions, it does provide strategic direction for the application of recreation objectives in 

the development of management plans and their implementation in day-to-day field 

operations. It does so in a way that enables BLM California to respond to national program 

direction that is unique to the diversity of its recreation areas, its communities and the 

services they provide, and the desires of BLM’s own distinctive recreation clientele, while 

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caring for the resources that provide the original experiences. 

This strategy is therefore organized around program objectives, not management 

objectives set through land use plans and therefore does not conflict with RMP objectives. 

The seven program objectives in this strategy have been adopted by the BLM Executive 

Leadership Team with input from the agency’s diverse recreation constituents. 

Complementing the BLM 

In May 2003, the BLM wrote a work plan called “The BLM’s Priorities for Recreation and 

Visitor Services” referred to as the Purple Book. The plan was developed in response to 

two goals established by the Department of the Interior: 

1. Provide for a quality recreation experience, including enjoyment of natural and 

cultural resources; and 

2. Provide for and receive fair value. 

To accomplish these goals, seven key objectives were set. The California Recreation 

Strategy embraces these objectives and highlights actions to be taken within the next five 

years specific to BLM California. These seven objectives establish the framework for the 

BLM California Recreation and Visitor Services Strategy. 

What’s Changed that Requires a Strategy? 

Changing Demand. California makes up less than 4.5% of America’s land mass and 

contains more than 12% of the population. In 2000, the number of people in the state 

totaled less than 34 million. By the year 2030, that figure is projected to be 46.5 million, 

an increase of almost 37%! Most of that growth will be near BLM public lands in nine field 

offices, through the middle of the central and southern part of the state and along the 

coast. The challenges to manage the subsequent increased demands on public lands will 

require an understanding of trends and their most likely implications as the population 

increases and the rate of demographic change accelerates. 

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In addition, a weakened dollar and strong marketing of California tourism has drawn 

visitors from around the world. In 2005-2006, the California Travel and Tourism 

Commission reported over $88 billion of tourism revenue in California. Increased cost of 

fuel and goods and services has created a greater demand for local tourism. Many of 

these travelers are considered cultural heritage tourists or the geo savvy and urban 

sophisticate traveler. 

From The Park and Recreation Trends in California, the interactions of several changes 

will have dramatic impacts on California recreation. These interactions are: 

California’s population will approach 50 million before 2040. 
 


California’s population is becoming more culturally and racially diverse. 

 California’s senior population will double by 2020. 
 


California’s baby boomers are now entering retirement age. 
 


California’s 18-40 year olds are creating new ways to experience the outdoors. 
 


California’s K-12 children will accelerate the rate of change (increased numbers). 
 


All of this socio-cultural and related economic change has and will continue to profoundly 

affect the BLM’s management of public lands recreation use, including both visitors and 

affected local communities and their residents. The distinctive character of public lands 

recreation settings are vitally important to 

Californians who value the wide-open spaces as 

integral to their quality of life. There has also been 

an accompanying diversification of the recreationtourism markets wanting to use and enjoy BLM public 

lands. Nationally, the BLM has recognized at least 

three distinctively different recreation/tourism 

markets, i.e., destination, community, and 

undeveloped settings. 

Changes in BLM Recreation Management. Another 

significant change comes with advancements in 

recreation science and management. Again, for the 

most part during the 1980s and ‘90s, recreation 

management for BLM California meant managing a 

variety of outdoor recreation activities. This simplistic 

approach to meeting user demand by activity treats 

recreation as “fun and games” for participants. 

People wanted hiking trails, so BLM built hiking trails. People wanted to float rivers, so 

BLM developed a river program and so on. Since recreation management was structured 

around individual activity demands, the BLM’s recreation program/staffing was therefore 

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structured around such principle recreation activities and initiatives as off-highway 

vehicles (OHV), river boating, hiking, trails, interpretation, permits and fees, etc. 

Managing recreation today on BLM public lands is much more complex. Technological 

advances have brought new recreation activities to the public lands, including 

exponentially increasing mountain bike and OHV use. This diversity of often competing 

recreation activities desired by visitors coupled with the dramatic increasing use of public 

lands, caused BLM recreation managers to realize that activity based management forced 

recreation planning, management, staffing and funding into a “reactive” mode. Public land 

managers were focused on facilitating activity use of the public lands without attention to 

the resulting changes we were causing in setting, thereby diminishing the character of the 

lands that produced beneficial outcomes to the public. 

At the same time, visitors and residents voiced concerns that the character recreation 

settings in which they recreate were just as critical as the activities available to them on 

public lands. Recreation management focusing solely on activities could allow the 

distinctive landscape character, especially areas that are characterized by more primitive, 

natural looking, and undeveloped recreation settings to change. In turn, the recreation 

experiences made available for visitors could be impacted. However, it appears that 

economies are strong, communities are thriving, and BLM visitor numbers are on the rise. 

While recreation management has negligible control over such external influences as 

private land growth and energy development, public land managers can enhance visitors’ 

quality of life and beneficial outcomes produced for communities, economies, and the 

environment itself through a management approach that follows the strategy outlined in 

this document. 

To improve recreation services and 

internal operations, BLM California is 

moving beyond an activity focused 

approach to an “outcomes focused” 

approach called benefits based 

management (BBM). BBM is the 

application of an outcomes focused 

philosophy to the delivery of recreation 

services. BBM provides the conceptual 

framework to view, plan and 

collaboratively provide recreation services 

as a means to larger “ends”—beneficial 

outcomes to individuals, communities, 

economies and the environment. By paying attention to “why people recreate” and the 

supporting recreational setting characteristics —“what the public lands are becoming,” in 

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addition to “what people want to do”—and how that may impact land health standards, 

managers have a logical framework that considers all the essential workings 

(implementation actions, recreation settings, recreation opportunities and outcomes, and 

potential resource impacts) that go into delivering the quality recreation services BLM’s 

visiting and resident customers desire. 

What’s Going to be Different? 

The seven national Recreation and Visitor Services Program objectives, around which this 

strategy is structured, provide a comprehensive answer to this question. Some of these 

objectives involve substantial programmatic changes, whereas others are mostly 

refinements of current management practices. While many components of this strategy 

are novel, others are already being implemented. 

Goals for the Strategy 

This Strategy is designed to increase public 

lands stewardship through consistent and 

coordinated management of the BLM 

California recreation program in order to 

achieve the best possible balance of 

recreation uses and land health standards 

statewide. 

The primary goals of the Strategy are to: 

1. Set a framework for achieving sustainable experiences and quality of life 

outcomes for individuals, communities, and the environment; 

2. Sustain diversity, distinctive character, capacity of BLM recreation settings; and 

3. Increase the economic stability and sustainability of the BLM California 

 recreation program. 

Taking Stock 

The four BLM California Resource Advisory Councils have worked closely with the BLM in 

recreation planning across the state. Their recommendations are complementary to the 

Recreation Strategy contained in this document which is designed to articulate the focus 

of the overall recreation program for BLM California. In addition, Technical Review Teams 

(TRTs) work with BLM to effectively plan for fee areas and make recommendations related 

to fee revenue expenditures. 

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BLM California manages substantial public lands lying in close proximity to many sizes and 

types of California communities. The changes in metropolitan and micropolitan (core area 

of 10,000 to 49,999) area populations from April 1, 2000, to July 1, 2006, demonstrate 

marked growth through central and coastal California. BLM’s Ukiah Field Office (FO) is 

situated adjacent to areas that have seen metropolitan growth from 6.3% to 12.7% and 

micropolitan growth as high as 66.7%. Folsom FO is in the middle of one of the fastest 

growing areas in California with some metropolitan cities increasing as much as 40% over 

the last six years. In fact, Placer County is the 50th fastest growing community in the 

United States. The Hollister FO is mostly positioned next to metropolitan areas that have 

grown as much as 6.3% and adjacent to some counties that have increased as much as 

40%. And Redding FO lands are accessible by metropolitan and micropolitan areas that 

have grown from 6.4% to 12.7%. The BLM field offices in Southern California are adjacent 

to or near some of the largest metropolitan centers of the U.S. 

Actions of recreation-tourism providers within each of these communities are not only 

essential to the use and enjoyment of BLM public lands, but they also influence and 

determine the character of recreation opportunities found there. 

BLM California public lands offer extremely diverse kinds of recreation, distinctively 

different from those provided by other agencies. These public lands provide opportunities 

to reconnect with rural roots and get away from the intensive recreation “rat race.” BLM 

California public lands offer the opportunity to walk along the Lost Coast, navigate miles of 

pristine Class I-V rivers, hike a remote wilderness area, ride technical mountain bike trails, 

explore the limits of driver and machine 

on large expanses of sand dunes, motor 

tour the Eastern Sierra, visit a historic 

lighthouse, experience intact historic and 

prehistoric cultural sites, or drive along 

one of California’s many Scenic and 

Historic Byways to view spectacular 

landscapes. BLM Back Country Byways 

may be found at three locations in 

California. Many other recreation 

experiences are also available, such as 

viewing wildlife, historic and cultural 

interpretation, exploration, rock climbing, 

hiking, backpacking, camping, and, of 

course, hunting and fishing. BLM offers 

recreation experiences for visitors of all abilities and provides significant economic benefit 

for local communities and regions throughout California. 

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Recreation and Tourism in California 

Recreation and tourism in California are big 

business – statistics show how significant and 

valuable recreation is to the California economy, 

local communities, residents and visitors alike. 

The most recent Public Opinions and Attitudes 

on Outdoor Recreation in California: An Element 

of the California Outdoor Recreation Plan 

provides a snapshot of contemporary outdoor 

recreation in the state. The key elements for 

California are: 

• Californians are avid and active outdoor 

recreation enthusiasts. 

• Californians look to their outdoor recreation 

pursuits for relaxation and natural values. 

• Californians differ from each other in their 

participation patterns and outdoor recreation 

styles. 

• Californians are using advances in technology 

and transportation to expand their outdoor 

recreation opportunities. 

• Californians will continue their love affair with 

the outdoors into the foreseeable future. 

California public lands are a critical component to the recreation and tourism industry, and 

many rural communities are dependent on the recreation opportunities and settings 

afforded by adjoining public lands. 

For the BLM, recreation and tourism have traditionally been viewed simplistically. 

Changing demographics, growth of destination resorts, diversification of products, and 

active Chambers of Commerce have changed the BLM’s perspective. Sustainable tourism 

markets and the demand for a triple bottom line tourism economy requires well thought 

out capacity planning. BLM now has significant visitor, community resident, business, and 

other constituent demand for touring, resorts, special events, and opportunities to learn 

about and enjoy California’s unique cultural and natural heritage. This requires BLM to 

collaboratively work and plan with communities and interested publics while upholding its 

fundamental duty to meet or exceed land health standards. For example, BLM 

partnerships with the California Travel and Tourism Commission, Alabama Hills 

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Stewardship Group, Shasta Cascade 

Wonderland Association, and United 

Desert Gateway demonstrate BLM’s 

desire to make the most efficient 

promotion of public lands recreational 

opportunities. 

Many of the BLM lands are adjacent to 

or near large population areas, but 

some field offices are located in more 

rural areas. The proximity of many BLM public lands to rural communities makes them 

vitally important to the quality of life of California residents. These “community backyards” 

are readily accessible for getting outdoor exercise, escaping workplace stress, and 

enjoying the closeness of friends and family. For affected communities, recreation areas 

on BLM public lands provide a higher sense of community satisfaction, greater sense of 

integration, connection to nature, alternative activities for youth, and improved local 

economic stability. 

Many factors, including population growth, 

recreation-tourism demand, and limited funding 

have challenged BLM’s ability to manage recreation 

in California. 

Resource Impact Concerns and Challenges 

Multiple challenges are posed by California’s 

population growth. Urban Front Range growth within 

an easy drive of BLM public lands accelerates 

destination recreation demand. Increased rural 

community growth from business relocations, 

second homes, and retirees creates corresponding 

increases in community-based recreation demand 

on readily accessible adjoining BLM public lands. 

Growth of tourism industry promotion and use 

likewise sends increasing numbers of outdoor 

adventurers to BLM public lands. Underlying these 

challenges is BLM’s dispersed recreation use and 

its need to maintain the distinctively undeveloped 

and open-space character of its recreation settings 

and the experiences and other benefits BLM public 

lands provide. 

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In addition, increased energy development throughout the state has stimulated rural 

growth in certain areas, which in turn generates greater recreation demand. The BLM 

must meet the challenges presented by the increase in energy development in many 

areas where recreation is also popular. In turn, the increased working population in nearby 

communities increases demand for quality recreation opportunities. 

BLM California should promote studies to identify desires for public lands recreation areas 

and related activities during the resource management planning process. These studies 

will help BLM determine visitor and community resident desires for resulting experiences 

and other benefits, and the setting characteristics on which their sustained benefit 

realization depends. 

Comprehensive travel management is a major challenge. New recreational vehicles are 

capable of negotiating terrain and reaching places that were considered inaccessible to 

these uses 20 years ago. In addition, navigation systems can direct visitors to places that 

are susceptible to resource damage. To 

address consequent effects to public land 

health as well as user conflict, the BLM is 

involving affected users and interested 

stakeholders in comprehensive travel 

management planning. Related increases 

in use require addressing many resource 

issues, including fragmentation of wildlife 

habitat and the spread of invasive species 

and noxious weeds through all forms of 

travel on BLM public lands. 

Another concern that BLM must consider 

in its planning efforts is maintaining the 

habitat and resources upon which 

recreation is dependent. For instance, 

power plant water diversions could 

severely change recreational boating, fishing, and camping opportunities and drastically 

change the livelihood of individual businesses and communities. Energy development in 

heavy use and/or pristine recreation settings can irretrievably impact experiences and 

opportunities. Increased recreation and development can also have a negative impact on 

archeological and historical resources. These resources are of great interest to Heritage 

Tourism but how do we enjoy them without destroying them? New interpretation and 

education will be integral for the agency to address these concerns. 

The tourism industry is increasingly looking for recreational experiences that will result in 

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longer visitor stays in their area and provide 

opportunities for recreating during the spring 

and fall shoulder seasons. Sustainable 

tourism markets have a strong emphasis on 

experiential learning through interpretation, 

education, and volunteering. Local 

communities and their residents are also 

placing increasing value on maintaining the 

character of place on recreation settings to 

enrich their quality of life and lifestyles. BLM 

will continue to experience a growing demand 

to provide these types of opportunities. 

BLM Authorities in Managing Recreation 

The BLM’s authority to manage recreation is based on the Federal Land Policy and 

Management Act (FLPMA) of 1976. The National Environmental Policy Act (NEPA), the 

Code of Federal Regulations-Title 43, and BLM Manuals also provide guidance in 

managing California’s public lands. Preserve America, Executive Order 13287 supports 

and directs federal agencies to engage in promoting preservation through heritage 

tourism. 

Strategy Framework 

The heart of the BLM California Recreation Strategy—the seven objectives outlined below— 

are synergistically interrelated; that is the objectives working together are greater than the 

sum of the objectives standing alone. The first three objectives unify California’s 

Recreation program. All of these objectives, considered to be the framework for 

California’s Recreation and Visitor Services Strategy, require managing all components of 

recreation, within the context of gateway community collaboration, for fair value and fair 

return. 

Management Objectives and Associated Actions 

Objective 1 

Manage Public Lands for Recreation Experiences and Quality of Life 

BLM California will work with communities, service providers, interest groups and 

individuals to produce recreation opportunities and maintain setting and character for 

visitors and local residents that will provide access to users to achieve health and fitness 

goals and quality of life benefits from the public lands. Understanding and responding to 

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the recreating public’s desired outcomes and priorities (individual, community, economic, 

and environmental) are of primary importance! 

Primitive Back 

Country 

Middle 

Country 

Front 

Country Rural Urban 

Objective 1: Actions 

All planning efforts (through Resource Management Plan development, amendment, or 

revision) will shift focus from activity based to Benefits Based Management (BBM). The 

shift to BBM further requires prescribing the setting conditions essential to produce the 

targeted outcomes desired by both land managers and the public. BLM recreation settings 

are typically more primitive and rugged, require more 

individual responsibility, and have an overall lower density 

and demand than lands managed by other agencies. 

• Planners and managers, in collaboration with 

communities and constituencies, will inventory and 

administer setting character to maintain a diversity of 

settings across the entire spectrum of recreation 

experiences, which include motorized uses such as 

motorcycling, four-wheeling, ATVing, snowmobiling and 

driving for pleasure; mechanized uses such as road biking 

and mountain biking; quiet recreation experiences such 

as hiking, horseback riding, fishing, and backpacking; and 

Heritage Tourism options that maintain the integrity of 

cultural, paleontological, natural history and historical 

locations while interpreting the stories of these important 

places. 

• Implement and monitor plan objectives to ensure that 

benefits, experiences, maintenance of recreation setting 

character, and land health standards are met. 

• Continue working with the business community, 

organized recreation groups, outfitters, communities, and 

interested individuals to instill a sense of pride and caring 

for public lands. 

• Develop ways of using concessions to help maintain or operate recreation areas. 

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• Incorporate the idea of climate change into planning so that recreational experiences 

may be directed toward reducing the carbon foorprint. Monitor economic changes (such as 

higher fuel prices) to leverage funding for eco-friendly recreation. 

Objective 2 

Encourage Sustainable Travel/Tourism Collaboration with Gateway Communities 

BLM California will actively participate at the state level and regional levels with California 

Travel and Tourism and with the California Roundtable on Recreation, Parks, and Tourism 

to assist gateway communities and field offices with sustainable tourism programs. BLM 

California will build sustainable tourism partnerships involving key service-providing 

businesses, regional tourism organizations, and local governments on whom the agency 

and its customers depend within gateway communities. While some BLM field offices have 

successfully collaborated with surrounding communities, more field offices will develop 

and maintain these valuable and essential relationships. 

BLM needs to improve and strengthen relationships with the tourism sector and serviceproviding businesses and local governments so that all will understand the approved 

recreation setting prescriptions and management objectives, agree to them, and market 

public lands responsibly. If BLM does not have these relationships, we will continue to be 

reactive and unable to meet the tremendous public demand set for us by our surrounding 

communities and continue to sustain degradation of important natural resources. 

Objective 2: Actions 

• Engage the business community and local governments in collaboratively planning and 

managing for sustainable recreation-tourism use of public lands that meet or exceed land 

health standards, addressing needs of shared visitor and resident customers. 

• Get involved in community-based planning to address mutual needs including 

communities (all local governments), service-providing businesses, and the BLM. 

• Engage chamber of commerce/tourism groups, outdoor businesses, heritage 

organizations, outfitters, other private recreation providers, and organized groups for ideas 

and ways to disseminate information regarding suitable visitor destinations on public 

lands, maps and user ethics. 

• Develop a field office level strategy for marketing public lands. 

Objective 3 

Provide Fair Value and Fair Return through Fees and Commercial Services 

California has a large commercial recreation permit program and manages 

many developed recreation sites. To maintain the quality of recreation 

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appropriations. 

• Encourage offices to develop and maintain partnerships that fulfill local needs while 

balancing recreational demands in administering public lands. 

• Explore the possibility of operating fee areas under concession agreement. 

Objective 4 

Establish a Comprehensive Approach to Travel Planning and Management 

Comprehensive travel planning and 

management is integral to the character of 

recreation settings. Travel management 

decisions support the fulfillment of planning 

objectives which include desired recreation 

setting objectives to protect and/or enhance 

landscape character. In all new land use plans, 

travel will only be permitted on designated 

routes, except in established OHV open areas 

for motorized use. Each office will work closely 

with communities, sister agencies, interest 

groups, and interested individuals to balance 

protecting the health of the land with providing 

appropriate public and administrative travel and 

access. 

Objective 4: Actions 

• Commit Management of Lands and Resources
 
 

(MLR) programs to provide funding to support Comprehensive Travel Management. 
 


• Integrate National Scenic Byways to BLM gateway communities and Back Country 

Byways. 

• Develop GIS mapping for travel management plans and make maps available on the 

internet and by hard copy. 

• Transportation routes identified for recreation purposes will include opportunities and 

quality experiences for all user groups, including hikers, backpackers, equestrians, 

bicycles, motorcycles, ATVs, four-wheel-drive vehicles, hunters, and anglers. However, this 

should not be interpreted that all users will be accommodated in all areas. 

• Work with interdisciplinary staff to broaden the scope of travel management to integrate 

with recreation management objectives and make it genuinely comprehensive for all BLM 

programs. 

• Design sustainable travel systems that meet recreationists needs (i.e. providing loops, 

varying levels of difficulty), and where sharing multi-modal trails or routes will be the norm. 

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• Integrate Recreation and Visitor Services land use planning requirements and those for 

comprehensive trails and travel management so that travel management follows, rather 

than precedes, the development of benefit based recreation management objectives and 

setting prescriptions. 

• Use alternative funding sources (such as SAFETEA-LU) to partner with local groups to 

further transportation planning. 

Objective 5 

Ensure Public Health and Safety and Improve Facility Condition and Accessibility 

BLM California will ensure facilities meet public health, safety, and accessibility standards. 

Proposed future sites will be evaluated carefully for public need, compatibility with 

recreation setting prescriptions, and 

future maintenance capabilities 

focusing implementation on NLCS 

units and SRMAs. New facilities will 

be encouraged to support dispersed 

recreation with a focus on preserving 

and maintaining the recreation 

setting. 

Objective 5: Actions 

• Develop facilities (such as trails, 

restrooms, and visitor centers) and 

resources that facilitate dispersed 

use through innovative partnerships for those systems that fit the BLM’s role and mission 

and that can be sustained with the BLM’s funding and staffing capabilities. 

• Engage communities, including key enthusiasts, in the resolution of health and safety 

issues/other conflicts at BLM recreation sites or areas - especially in urban/community 

interface areas. 

• Improve capacity to inform visitors about safety concerns (facilities, fire, high water, 

etc.), environmental conditions, and emergency situations, both on-site and by using webbased and other technologies. 

• When possible, work with law enforcement officers and public affairs to publicize 

vandalism and convictions. 

• Expand visitor education regarding a “pack it in, pack it out” policy. Continue to mandate 

and educate the public regarding Leave No Trace ethics such as using firepans, camping 

ethics, etc. 

• Determine if existing facilities meet accessibility standards, management objectives, 

and desired future conditions. Existing facilities deemed critical will be maintained and/or 

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modified to be accessible, to the extent possible, and safe for visitor use. Facilities not 

meeting management objectives and accessibility standards will be considered for 

removal. 

Objective 6 

Enhance and Expand Visitor Services, Including Interpretation, Information, and Education 

BLM California will work internally and externally with strategic partners at the local, state, 

and national level to connect residents and visitors to suitable recreation and Sustainable 

Tourism opportunities that match visitors with 

desired experiences. BLM California will 

improve availability, accuracy, and consistency 

of visitor information where future desired 

conditions have been determined and deemed 

appropriate. Land ethics and stewardship will 

be heavily promoted. The Leave No Trace 

program will be emphasized with tourism and 

public land visitation. 

Objective 6: Actions 

• Develop a BLM network at all levels for 

disseminating information to the public by 

working with partners to provide accurate 

information about recreation opportunities 

(experiences, benefits, settings, services and 

management controls) to match visitors with 

the experiences they desire and to support the 

goals and objectives of BLM and its 

community partners (local government and 

businesses). 

• Develop statewide leadership to provide 

front line visitor services staff with the tools 

and resources (appropriate web site information and recreation-visitor services briefing 

book) to respond to visitor needs and to articulate BLM policy and regulations by 

enhancing support from and communication with recreation staff, managers, and public 

affairs. 

• Build existing programs and staff capacity for environmental education and 

interpretation—working with other organizations and providing learning opportunities 

through student internships with academic recreation and tourism programs. Work with 

nearby colleges, schools, and outdoor education programs to teach land use ethics. 

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Identify opportunities to collaborate to secure funding to enhance visitor services at the 

local level—especially signing and maps. Focus on NLCS units and SRMAs. 

• Working with partners, improve statewide website content to address recreation 

opportunities, recreation settings, and available visitor services such as consistent 

interactive maps and content adequate to enable visitors to plan trips that meet their 

particular needs. 

• Work integrally with other BLM specialists such as minerals, range, and wildlife so that 

authorized users can proactively be informed about recreation facilities, events, and 

users, and thus reduce confusion and conflict. 

Objective 7 

Encourage and Sustain Collaborative Partnerships, Volunteers, and Public Service 

Develop and enhance partnerships with key groups 

and organizations. Partnerships and volunteers 

enhance and are essential to a successful BLM 

California recreation program. BLM managers, 

volunteer coordinators, recreation staff and other 

program leads will ensure that all partnership and 

volunteer projects are preceded by and consistent with 

approved recreation management objectives and 

setting prescriptions and aligned with the appropriate 

individuals or groups which best fit the need for that 

specific instance. This ensures that relationships 

become sustainable over the long term and creates the 

greatest benefit for the volunteers, partners and the 

public lands. 

The California Roundtable on Recreation, Parks, and 

Tourism (CRRPT), Shasta Cascade Wonderland 

Association, Alabama Hills Stewardship Group, United 

Desert Gateway, California State Parks, U.S. Forest 

Service, California Fish and Game, Watchable Wildlife, 

Tread Lightly, and Leave No Trace are just a few of the 

successful partnerships BLM California has formed. BLM will continue to work with these 

organizations and others to help promote responsible recreation and visitor safety. 

Objective 7: Actions 

• Continue to partner and collaborate with gateway communities and other partners to 

increase support, strengthen economies, and develop “friends groups” for NLCS units and 

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other BLM recreation destinations. 

• Continue and enhance partnerships with other federal and state agencies, such as the 

U.S. Forest Service, California State Parks, California Fish and Game, and National Park 

Service. 

• Identify opportunities for companies and community businesses to sponsor projects that 

achieve management objectives, maintain recreation setting character, and meet land 

health standards. 

• Focus on identifying Sustainable Tourism opportunities and work with local 

communities, partners, historic interest groups, and the tourism community to sustain and 

promote education about, and enjoyment, and protection of those opportunities. 

• Expand the adoption of recreation areas (rivers, trails, etc.) by partners and volunteers, 

by including them in the planning process as well as in implementing actions and assisting 

with ongoing maintenance. 

• Continue to work closely with other agencies, local communities, and groups to support 

and promote the Watchable Wildlife program. 

Time for Action 

Together with its field offices, partners, stakeholders, tribal, local and state governments, 

and other federal agencies, BLM California now sets out to implement this Recreation and 

Visitor Services Strategy. Coordination and collaboration will be key to our effectiveness in 

successfully applying the identified objectives in order to accomplish the goals of the 

California Recreation Program—to provide a framework, to sustain the recreation setting, 

and to increase funding. 

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BLM California is addressing future budget needs with a dual approach. We are 

emphasizing continued and new collaboration, partnerships, and shared responsibility 

among public land agencies, gateway communities, key service providers, and the various 

constituencies who continue to play a vital role in managing public lands. In addition, BLM 

California is mandating that field offices realistically plan through land use plans, activity 

plans, and agreements for a long-term, sustainable recreation program. The capability of 

each office to implement this strategy will vary, but each office should have the 

implementation within their Resource Management Plan as it is updated or rewritten. 

Separate planning (such as activity level plans) may be conducted if needed. 

The next five years will see important changes in how BLM California manages its 

recreation program. A great deal of time and energy, by all involved with BLM public lands 

in California, will be necessary in the coming years to take recreation to the next level. 

Achieving that desired level will require dedication from both those who work and play on 

BLM public lands. 

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BLM Abbreviations 

ACEC Area of Critical Environmental Concern 

ATV All-Terrain Vehicle 

BBM Benefits Based Management 

BMP Best Management Practice 

BLM Bureau of Land Management 

CFR Code of Federal Regulations 

CRRPT California Roundtable on Recreation, Parks, and Tourism 

DEIS Draft Environmental Impact Statement 

EA Environmental Assessment 

EIS Environmental Impact Statement 

FLPMA Federal Land Policy and Management Act of 1976 

MLR Management of Lands and Resources 

MOU Memorandum of Understanding 

NAI National Association of Interpreters 

NCA National Conservation Area 

NEPA National Environmental Policy Act of 1969, as amended 

NLCS National Landscape Conservation System 

NOI Notice of Intent 

OHV Off-Highway Vehicle 

ORV Off-Road Vehicle 

RAC Resource Advisory Council 

RMP Resource Management Plan 

ROD Record of Decision 

RRAC Recreation Resource Advisory Committee 

SAFETEA-LU Safe, Accountable, Flexible, Efficient Transportation Equity Act—A Legacy for Users 

SRMA Special Recreation Management Area 

SRP Special Recreation Permit 

T&E Threatened and Endangered 

WSA Wilderness Study Area 

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Appendix 1 

Glossary 

All-Terrain Vehicle: A wheeled or tracked vehicle, other than a snowmobile or work vehicle, 

designed primarily for recreational use or for the transportation of property or equipment 

exclusively on undeveloped road rights-of-way, marshland, open country, or other 

unprepared surfaces. 

Area of Critical Environmental Concern: Areas within the public lands where special 

management attention is required to: (1) protect and prevent irreparable damage to 

important historic, cultural, or scenic values; fish and wildlife resources, or other natural 

systems or processes, or (2) protect life and safety from natural hazards. 

Code of Federal Regulations: The official, legal tabulation or regulations directing federal 

government activities. 

Collaboration: A cooperative process in which interested parties, often with widely varied 

interests, work together to seek solutions with broad support for managing public and 

other lands. This may or may not involve an agency as a cooperating agency. 

Comprehensive Travel Management: The proactive management of public access, natural 

resources and regulatory needs to ensure that all aspects of road and trail system 

planning and on the management are considered. This includes resource management, 

road and trail design, maintenance, and recreation and nonrecreation uses of the roads 

and trails. Travel activities in this context incorporate access needs and the effects of all 

forms of travel both motorized and non-motorized. 

Cultural Resources: Nonrenewable elements of the physical and human environment, 

including archaeological remains (evidence of prehistoric or historic human activities) and 

socio-cultural values traditionally held by ethnic groups (sacred places, traditionally 

utilized raw materials, etc.). 

Cultural Site: Any location that includes prehistoric and/or historic evidence of human use, 

or that has important socio-cultural value. Designated Roads and Trails: Specific roads 

and trails where some type of motorized vehicle use is allowed either seasonally or 

yearlong. 

Developed Recreation Sites: Facilities will vary from site to site, but generally, BLM sites 

can include as little as a cleared opening off-trail for primitive camping, to off-loading 

ramps, informational kiosks and signs, vault toilets, campsites with cabanas and fire rings, 

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and graveled access roads. 

Dispersed/Extensive Recreation: Recreation activities of an unstructured type that are not 

confined to specific locations, such as recreation sites. Examples of these activities may 

be hunting, fishing, off-road vehicle use, hiking, and sightseeing. 

Extensive Recreation Management Area: Areas where significant recreation opportunities 

and problems are limited and explicit recreation management is not required. Minimal 

management actions related to the Bureau’s stewardship responsibilities are adequate in 

these areas. 

Federal Land Policy and Management Act of 

1976: Public Law 94-579. October 21, 1976, 

often referred to as the BLM’ s “Organic Act,” 

which provides the majority of the BLM’s 

legislated authority, direction, policy, and 

basic management guidance. 

Federal Lands Recreation Enhancement Act: 

Signed into law by the President on December 

8, 2004, the Act gave federal agencies a long 

term, multi-agency recreation fee program. 

Recreation fees provide crucial resources that 

allow the federal agencies to respond to 

increased demand on federal lands. The goal 

is to provide visitors with a quality recreation experience through enhanced facilities and 

services. 

Goal: A broad statement of a desired outcome. Goals are usually not quantifiable and may 

not have established time frames for achievement. 

Habitat: A specific set of physical conditions that surround a species, group of species, or 

a large community. In wildlife management, the major constituents of habitat are 

considered to be food, water, cover, and living space. 

Heritage Tourism: Traveling to experience the places, artifacts and activities reflecting the 

stories and people of the past and present. 

Historic: Period wherein nonnative cultural activities took place, based primarily upon 

European roots, having no origin in the traditional Native American culture(s). 

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Implementation Plan: A site-specific plan written to implement decisions made in a land 

use plan. An implementation plan usually selects and applies best management practices 

to meet land use plan objectives. Implementation plans are synonymous with “activity” 

plans. Examples of implementation plans include interdisciplinary management plans, 

recreation area management plans, habitat management plans, and allotment 

management plans. 

Land Use Plan: A set of decisions that establish management direction for land within an 

administrative area, as prescribed under the planning provisions of FLPMA; an 

assimilation of land-use-plan-level decisions developed through the planning process, 

regardless of the scale at which the decisions were developed. 

Management Decision: A decision made by the BLM to manage public lands. 

Management decisions include both land use plan decisions and implementation 

decisions. 

Monitoring: The periodic observation and orderly collection of data on (1) changing 

conditions of public land related to management actions, and (2) the effects of 

implementing decisions. 

Multiple Use: The management of the public lands and their various resource values so 

that they are utilized in the combination that will best meet the present and future needs 

of the American people; making the most 

judicious use of the lands for some or all 

of these resources or related services 

over areas large enough to provide 

sufficient latitude for periodic 

adjustments in use to conform to 

changing needs and conditions; the use 

of some lands for less than all of the 

resources; a combination of balanced 

and diverse resource uses that takes into 

account the long-term needs of future 

generations for renewable and 

nonrenewable resources, including but 

not limited to recreation, range, timber, 

minerals, watershed, wildlife and fish, 

and natural scenic, scientific and 

historical values; and harmonious and coordinated management of the various resources 

without permanent impairment of the productivity of the lands and the quality of the 

environment with consideration being given to the relative values of the resources and not 

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necessarily to the combination of uses that will give the greatest economic return or 

greatest unit output. 

National Conservation Area: A congressionally designated public land area that contains 

important resources and whose management objectives are (1) to conserve and protect 

these resources, (2) to maintain environmental quality, and (3) to provide for present and 

future users within a framework of multiple 

use and sustained yield. 

National Environmental Policy Act of 1969: 

An Act that encourages productive and 

enjoyable harmony between man and his 

environment and promotes efforts to prevent 

or eliminate damage to the environment and 

biosphere and stimulate the health and 

welfare of man; enriches the understanding 

of the ecological systems and natural 

resources important to the Nation; and 

establishes the Council on Environmental 

Quality. 

National Landscape Conservation System: A 

system of Congressional, Presidential, or 

other designated areas managed by the 

BLM, the components of which include 

National Monuments, National Conservation 

Areas, Wilderness Areas, Wilderness Study 

Areas, Wild and Scenic Rivers, National 

Historic Trails, National Scenic Trails, the 

California Desert Conservation Area, and the 

Headwaters Forest Reserve. 

Objective: A description of a desired condition for a resource. Objectives can be quantified 

and measured and, where possible, have established time frames for achievement. 

Off-Highway Vehicle (Off-Road Vehicle): Any motorized vehicle capable of, or designed for, 

travel on or immediately over land, water, or other natural terrain, excluding: (1) any nonamphibious registered motorboat; (2) any military, fire, emergency, or law enforcement 

vehicle while being used for emergency purposes; (3) any vehicle whose use is expressly 

authorized by the authorized officer, or otherwise officially approved; (4) vehicles in official 

use; and (5) any combat or combat support vehicle when used in times of national 

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defense emergencies. 

Open: Generally denotes that an area is available for a particular use or uses. Refer to 

specific program definitions found in law, regulations, or policy guidance for application to 

individual programs. 

Open Areas and Trails: Designated 

areas and trails where off-road vehicles 

may be operated, subject to operating 

regulations and vehicle standards, or an 

area where all types of vehicle use is 

permitted at all times, subject to 

standards. 

Plan: A document that contains a set of 

comprehensive, long-range decisions 

concerning the use and management of 

Bureau-administered resources in a 

specific geographic area. 

Planning Area: A geographical area for which land use and resource management plans 

and activity level plans are developed and maintained. 

Public Land: Land or interest in land owned by the United States and administered by the 

Secretary of the Interior through the BLM, except lands located on the Outer Continental 

Shelf, and land held for the benefit of Indians, Aleuts, and Eskimos. 

Quiet Recreation: Outdoor recreation enthusiasts such as hikers, skiers, mountain bikers, 

equestrians, bird watchers, hunters and anglers who seek the opportunity to enjoy natural 

soundscapes. 

Recreation Management Zones: A planning process that provides a framework for 

defining specific geographic areas on the ground, each of which encompasses the outdoor 

recreation environments, activities, and experience opportunities. 

Recreation Resource Advisory Committee (RRAC): A citizen committee set up by the 

Secretary of Agriculture (for California) to advise BLM and the Forest Service on matters 

related to fees approved under the Federal Lands Recreation Enhancement Act. 

Resource Advisory Council (RAC): A council established by the Secretary of the Interior to 

provide advice or recommendations to BLM management. 

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Resource Management Plan: A land use plan as prescribed by the Federal Land Policy and 

Management Act that establishes, for a given area of land, land-use allocations, coordination guidelines for multiple use, objectives, and actions to be achieved. 

Scenic Byways: Highway routes that have roadsides or corridors of special aesthetic, cultural, or historic value. An essential part of the highway is its scenic corridor, which may 

contain outstanding scenic vistas, unusual geologic features, or other natural elements. 

Special Recreation Management Area: Areas that require explicit recreation management 

to achieve recreation objectives and provide specific recreation opportunities. 

Stewardship Partners: Cooperation and collaboration among the BLM, partners, stakeholders, local and state governments, and other federal agencies for the purpose of effectively carrying out the Bureau’s mission to sustain the health, diversity, and productivity of 

the public lands for the use and enjoyment of present and future generations. 

Strategy: Defined as the planning and directing of operations, specifically of maneuvering 

forces into the most advantageous position. 

Sustainability: The ability of an ecosystem to maintain ecological processes and functions, 

biological diversity, and productivity over time. 

Sustainable Tourism: Tourism that meets the needs of present tourists and host regions 

while protecting and enhancing opportunities for the future. 

Wilderness Study Area: A designation made through the land use planning process of a 

roadless area found to have wilderness characteristics as described in Section 2 (c) of the 

Wilderness Act of 1964. A congressionally designated area of undeveloped federal land 

retaining its primeval character and influence, without permanent improvements or human 

habitation, that is protected and managed to preserve its natural conditions and that (1) 

generally appears to have been affected mainly by the forces of nature, with human imprints substantially unnoticeable; (2) has outstanding opportunities for solitude or a primitive and unconfined type of recreation; (3) has at least 5,000 acres or is large enough to 

make practical its preservation and use in an unimpaired condition; and (4) may also contain ecological, geological, other features of scientific, educational, scenic, or historic value. 

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Appendix 2 

BLM Authorities For Managing Recreation 

From the Federal Land Policy and Management Act: 

SEC. 102 (a) The Congress declares that it is the policy of the United States that . . . 

SEC. 102 (a)(7): goals and objectives be established by law as guidelines for public land 

use planning, and that management be on the basis of multiple use and sustained yield 

unless otherwise specified by law; 

SEC. 102 (a) (8): the public lands be managed in a manner that will protect the quality of 

scientific, scenic, historical, ecological, environmental, air and atmospheric, water resource, and archaeological values; that, where appropriate, will preserve and protect certain public lands in their natural condition; that will provide food and habitat for fish and 

wildlife and domestic animals; and that will provide for outdoor recreation and human occupancy and use; 

SEC. 102 (a) (9): the United States receive fair market value of the use of the public lands 

and their resources unless otherwise provided for by statute; 

SEC. 103 (c): The term “multiple use” means the management of the public lands and their 

various resource values so that they are utilized in the combination that will best meet the 

present and future needs of the American people; making the most judicious uses of the 

land for some or all of these resources or related services over areas large enough to provide sufficient latitude for periodic adjustments in use to conform to changing needs and 

conditions; the use of some land for less than all of the resources; a combination of balanced and diverse resource uses that takes into account the long-term needs of future 

generations for renewable and nonrenewable resources, including, but not limited to, recreation, range, timber, minerals, watershed, wildlife and fish, and natural scenic, scientific 

and historical values; and harmonious and coordinated management of the various resources with the permanent impairment of the productivity of the land and the quality of 

the environment with consideration being given to the relative values of the resources and 

not necessarily to the combination of uses that will give the greatest economic return or the 

greatest unit of output. 

SEC. 201 (a): The Secretary shall prepare and maintain on a continuing basis an inventory 

of all public lands and their resource and other values (including, but not limited to, outdoor 

recreation and scenic values), giving priority to areas of critical environmental concern. This 

inventory shall be kept current so as to reflect changes in conditions and to identify new 

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and emerging resource and other values. The preparation and maintenance of such inventory or the identification of such areas shall not, of itself, change or prevent change of the 

management or use of public lands. 

SEC. 201 (b): As funds and manpower are made available, the Secretary shall ascertain 

the boundaries of the public lands; provide means of public identification thereof including, where appropriate, signs and maps; and provide State and local governments with 

data from the inventory for the purpose of planning and regulating the uses of non-Federal 

lands in proximity of such public lands. 

SEC. 202 (a): The secretary shall, with public involvement and consistent with the terms 

and conditions of this Act, develop, maintain, and, when appropriate, revise land use plans 

which provide by tracts or areas for the use of the public lands. Land use plans shall be 

developed for the public lands regardless of whether such lands previously have been 

classified, withdrawn, set aside, or otherwise designated for one or more uses. 

SEC. 302 (a): The Secretary shall manage the public lands under principles of multiple use 

and sustained yield, in accordance with the land use plans developed by him under section 202 of this Act when they are available, except that where a tract of such public land 

has been dedicated to specific uses according to any other provisions of law it shall be 

managed in accordance with such law. 

SEC. 302 (b): In managing the public lands, the Secretary shall, subject to this Act and 

other applicable law and under such terms and conditions as are consistent with such law, 

regulate, through easements, permits, licenses, published rules, or other instruments as 

the Secretary deems appropriate, the use, occupancy, and development of the public 

lands, including, but not limited to, long-term leases to permit individuals to utilize public 

lands for habitation, cultivation, and the development of small trade or manufacturing concerns.....Provided further , That nothing in this Act shall be construed as authorizing the 

Secretary concerned to require Federal permits to hunt and fish on public lands or on 

lands in the National Forest System and adjacent waters or as enlarging or diminishing the 

responsibility and authority of the States for management of fish and resident wildlife. 

However, the Secretary concerned may designate areas of public land and of lands in the 

National Forest System where, and establish periods when, no hunting or fishing will be 

permitted for reasons of public safety, administration, or compliance with provisions of 

applicable law. 

SEC. 318 (d): In exercising the authority to acquire by purchase granted by subsection (a) 

of section 205 of this Act, the Secretary may use the Land and Water Conservation Fund 

to purchase lands which are necessary for proper management of public lands which are 

primarily of value for outdoor recreation purposes. 

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SEC. 603 (c): ...Once an area has been designated for preservation as wilderness, the provisions of the Wilderness act which apply to national forest wilderness areas shall apply 

with respect to the administration and use of such designated area, including mineral surveys required by section 4(d) (2) of the Wilderness Act, and mineral development, access, 

exchange of lands, and ingress and egress for mining claimants and occupants. 

From The Wilderness Act 

SEC. 2 (a): In order to assure that an increasing population, accompanied by expanding settlement and growing mechanization, does not occupy and modify all areas within the 

United States and its possessions, leaving no lands designated for preservation and protection in their natural condition, it is hereby declared to be the policy of the Congress to secure for the American people of present and future generations the benefits of an enduring 

resource of wilderness. For this purpose there is hereby established a National Wilderness 

Preservation System to be composed of federally owned areas designated by Congress as 

“wilderness areas”, and these shall be administered for the use and enjoyment of the 

American people in such a manner as will leave them unimpaired for future use and enjoyment as wilderness, and so as to provide for the protection of these areas, the preservation 

of their wilderness character, and enjoyment as wilderness; and no Federal lands shall be 

designated as “wilderness areas” except as provided for in this Act or by a subsequent Act. 

From Executive Order 13287, Preserve America 

Sec. 5. Promoting Preservation Through Heritage Tourism. (a) To the extent permitted by 

law and within existing resources, the Secretary of Commerce, working with the Council and 

other agencies, shall assist States, Indian tribes, and local communities in promoting the 

use of historic properties for heritage tourism and related economic development in a manner that contributes to the long-term preservation and productive use of those properties. 

Such assistance shall include efforts to strengthen and improve heritage tourism activities 

throughout the country as they relate to federally owned historic properties and significant 

natural assets on Federal lands. 

(b) Agencies shall use historic properties in their ownership in conjunction with State, tribal, 

and local tourism programs to foster viable economic partnerships, including cooperation 

and coordination with tourism officials and others with interests in the properties.Where 

consistent with agency missions and governing law, and where appropriate, agencies shall 

use historic properties in their ownership in conjunction with State, tribal, and local tourism 

programs to foster viable economic partnerships, including, but not limited to, cooperation 

and coordination with tourism officials and others with interests in the properties. 

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Appendix 3 

Federal Lands Recreation Enhancement Act 

Summary 

The Federal Lands Recreation Enhancement Act was passed in the 2005 Omnibus 

Appropriations bill signed into law by President Bush on December 8, 2004. 

The Federal Lands Recreation Enhancement Act benefits visitors to Federal public lands 

by: 

Reinvesting a majority of fees back to the site of collection to enhance visitor services and 

reduce the backlog of maintenance needs for recreation facilities (including trail 

maintenance, toilet facilities, boat ramps, hunting blinds, interpretive signs and programs); 

Providing an interagency fee program that reduces confusion over differing fee programs 

and passes by reducing four national passes down to one. 

Providing more opportunities for public involvement in determining recreation fee sites 

and fees; 

Providing focused criteria and limits on areas and sites where recreation fees can be 

charged; and 

Providing more opportunities for cooperation with gateway communities through fee 

management agreements for visitor and recreation services, emergency medical services 

and law enforcement services. 

Many recreation activities and sites will continue to be free. The Act includes additional 

provisions that build on experiences from the Fee Demo program and improve the fee 

program by clarifying the circumstances in which fees may be charged. The Act prohibits 

certain fees for: 

General access to national forests and grasslands and Bureau of Land Management areas; 

Horseback riding, walking through, driving through, or boating through areas where no 

facilities or services are used; 

Access to overlooks or scenic pullouts; 

Undesignated parking areas where no facilities are provided for; 

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Picnicking along roads or trails; and 

In addition individuals under 16 will not be charged an entrance or standard amenity fee. 

REA applies to Federal recreation lands under the jurisdiction of the following land 

management agencies:

 National Park Service 

U.S. Fish and Wildlife Service 

Bureau of Land Management 

 Bureau of Reclamation

 U.S. Forest Service 

All agencies except the Bureau of Reclamation have had fee authority under Fee 

Demonstration program and the Land and Water Conservation Fund Act. 

The Act authorizes the Secretaries of the Interior and Agriculture to establish, modify, 

change and collect recreation fees at Federal recreation lands and waters as provided for 

in the Act. The Act will expire December 2014. 

The Act authorizes three types of fees called Standard, Expanded and Special Recreation 

Permits. 

Standard fees are typical day use fees. Sites or areas must have specific features and 

amenities in order to qualify as a fee site. 

Expanded fees are fees that provide direct benefits to individuals or groups. They include 

things like developed campgrounds, cabin rentals, highly developed boat docks and 

swimming areas. They may also include services like hookups, dump stations, special 

tours and reservations services. 

Special Recreation Permits are for areas where natural and cultural resources need
 
 

protection or where extra measures are required for the health and safety of visitors.
 
 

Permits may be required for places like wilderness 
 


areas, shooting ranges and specialized trail systems.
 
 

The America the Beautiful Pass 

The Act expands the National Park Pass by 

authorizing a new “America the Beautiful – National 

Parks and Federal Recreation Lands Pass”. 

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This pass will cover entrance fees and standard amenity recreation fees for all Federal 

recreation lands and waters where a fee is charged. 

Existing National Park passes, Golden Eagle, Golden Age, and Golden Access passes will 

be grandfathered in under their existing benefits and will remain valid until expired. 

Site specific and regional passes such as the Adventure Pass for National Forests in 

Southern California will remain valid and will continue to be available under this Act. 

REA provides for a high level of public involvement in determining new fee areas and fee 

schedules by: 

Implementing the use of Recreation Resource Advisory Committees for national forest and 

BLM sites and areas to give communities additional opportunities to provide input on 

recreation fees in terms of new fees, changes or the establishment of sites; 

Providing additional opportunities for public participation and prior notice prior to a new 

fee being established; and Communicating with the visiting public on how fee revenues 

are being spent to improve visitor facilities and services. 

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C ALIFORNIA R ECREATION AND V ISITOR S ERVICES S TRATEGY 

Different uses on the trails in the Mojave. 

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