Opinion ID: 1041860
Heading Depth: 5
Heading Rank: 1

Heading: BLM’s regulation, Manual, and BLM policy

Text: McMaster argues that the regulation, Manual, and BLM policy are consistent with his interpretation and require that McMaster be issued a fee-simple patent. None of these, however, clearly requires issuing title to the surface estate for all valid claims. First, the regulation contained in 43 C.F.R. § 3638.5 states that for “mineral locations established after [the effective date of the Wilderness Act], or validated by discovery of minerals 14 MCMASTER V. UNITED STATES occurring after [the effective date of the Wilderness Act],” title will issue to only the mineral deposits; the United States will retain title to the surface of the land. 43 C.F.R. § 3638.5. Section 3638.5 does not even address claims that were established prior to the effective date of the Wilderness Act. And stating that claims discovered after the effective date of the Act receive only limited patents does not necessarily mean that every valid claim located prior to the time announced in the Regulation is entitled to a fee-simple patent. In contrast to the regulation, the Manual addresses claims that were established prior to the wilderness designation. The Manual states that “[f]or claims located before enactment of the Wilderness Act . . . the claims must have a discovery as of the date of enactment to acquire the surface and mineral estates,” BLM Manual H-3860-1, Mineral Patent Application Processing, VIII-7 (Apr 17, 1991). Although the Manual indicates that a claim must be discovered prior to the wilderness designation to receive title to the surface estate, nowhere does the manual state that this is all that is required. Indeed, discovery is a necessary, but not a sufficient, condition for establishing a valid claim; the claim must also be located “by reference to some natural object or permanent monument as will identify the claim.” 30 U.S.C. § 28; see Cole, 252 U.S. at 296. Moreover, even if the Manual could be read as stating that valid claims established before the wilderness designation are entitled to title to the surface state, BLM manuals are not legally binding. See Schweiker v. Hansen, 450 U.S. 785, 789–90 (1981) (holding that a Social Security manual did not bind the Social Security Administration because it is not a regulation and has “no legal force”); Robert S. Glenn DeLloyd Cazier, 124 IBLA 104, 109 (IBLA 1992) (“Instruction Memoranda and BLM Manual provisions do not have the force and effect of law and are not MCMASTER V. UNITED STATES 15 binding on either this Board or the public at large.” (internal quotation marks and citation omitted)). Finally, the BLM policy states that “[a] patent conveying both surface and mineral rights may be issued on a valid claim located prior to the date the area was included as part of the National Wilderness Preservation System.” Bureau of Land Management, Wilderness Management Policy, 46 Fed. Reg. 47,180-01 (1981) (emphasis added). Although the BLM policy indicates more clearly that valid claims may receive fee-simple title, the language of the policy is discretionary (“may be issued”). The policy thus leaves room for BLM to impose additional requirements for receiving fee-simple title. And, in any event, like the Manual, a BLM management policy is not legally binding. See King’s Meadow Ranches, 126 IBLA 339, 341 n.2 (IBLA 1993) (stating that policies “not established by regulation . . . lack[] the force and effect of law”); see also Schweiker, 450 U.S. at 789–90. Thus, neither the regulation, nor the Manual, nor the BLM policy entitles McMaster to fee-simple title to the surface estate.