The problem with cooperation is that an agency can become the captive of the user group. Such charges have been flung around many times. If you are a conservationist, you talk about the agency's being captive to the ranchers. If you are a rancher, you talk about the reverse. The conservationists and ranchers talk about the mining people.
Agencies are always somebody else's captive.
This situation isn't limited to public lands either. There is always the possibility that a government agency really is an arm of a private interest group. Unfortunately, at the other extreme from cooperation, you have confrontation. There has always been some of that, but I think we are seeing more of it. I think federal ownership is here to stay.