Budget justifications and performance information, fiscal year 2013 : Bureau of Land Management

2013·7.7 MB·English

by  United States. Department of the Interior. Office of Budget

BUDGET The United States
Department of the Interior
JUSTIFICATIONS
and Performance Information
Fiscal Year 2013
BUREAU OF
LAND MANAGEMENT
NOTICE: These budget
justifications are prepared
for the Interior, Environment
and Related Agencies
Appropriations Subcommittees.
Approval for release of the
justifications prior to their
printing in the public record of
the Subcommittee hearings
may be obtained through
the Office of Budget of the
Department of the Interior.
Bureau of Land Management 2013 Budget Justifications
T C
ABLE OF ONTENTS

I. Executive Summary .......................................................................................................... I-1

Mission ................................................................................................................................ I-1
Bureau Overview ................................................................................................................ I-1
Providing for the Nation’s Needs ........................................................................................ I-2
2013 Budget Overview ....................................................................................................... I-3
Partners and Volunteers ..................................................................................................... I-5
Greater Sage-Grouse Conservation ................................................................................... I-5
America’s Great Outdoors .................................................................................................. I-5
New Energy Frontier ........................................................................................................... I-6
Landscape Conservation Cooperatives .............................................................................. I-7
Youth in the Great Outdoors ............................................................................................... I-8
Other Priority Increases ...................................................................................................... I-8
Campaign to Cut Waste ...................................................................................................... I-8
Organizational Structure ..................................................................................................... I-9

II. Summary of Program and Legislative Changes ........................................................... II-1

America’s Great Outdoors ................................................................................................. II-2
Land Acquisition – America’s Great Outdoors ................................................................... II-2
New Energy Frontier .......................................................................................................... II-3
Other Program Increases .................................................................................................. II-4
Other Program Decreases ................................................................................................. II-5
Internal Transfers ............................................................................................................... II-6
Fixed Costs ........................................................................................................................ II-7
Legislative and Administrative Changes ............................................................................ II-7

III. Performance Overview ................................................................................................... III-1

Priority Goals .................................................................................................................... III-1
BLM’s Contribution to the DOI Strategic Plan ................................................................... III-5
Goal Performance Table ................................................................................................... III-6

IV. Initiatives ........................................................................................................................ IV-1

America’s Great Outdoors ............................................................................................... IV-1
New Energy Frontier ........................................................................................................ IV-4
Greater Sage-Grouse Conservation ................................................................................ IV-6

V. Crosscutting Programs .................................................................................................. V-1

National Landscape Conservation System ....................................................................... V-1
Funding Sources for the National Landscape Conservation System .................... V-2
Units of the National Landscape Conservation System ........................................ V-4
National Monuments and National Conservations Areas ..................................... V-5
Wilderness and Wilderness Study Areas .............................................................. V-5
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Bureau of Land Management 2013 Budget Justifications
Wild and Scenic Rivers ......................................................................................... V-5
National Scenic and Historic Trails ....................................................................... V-6
Service First ...................................................................................................................... V-8
Education ........................................................................................................................ V-10
Interpretation ................................................................................................................... V-12
Partnerships .................................................................................................................... V-13
Volunteers ....................................................................................................................... V-15
Landscape Approach to Managing the Public Lands ..................................................... V-16

VI. Budget at a Glance ........................................................................................................ VI-1

VII. Collections .................................................................................................................... VII-1

VIII. Management of Lands and Resources ...................................................................... VIII-1

Appropriations Language ............................................................................................... VIII-1
Justification of Proposed Language Change ................................................................. VIII-1
Appropriation Language Citations ................................................................................. VIII-2
Authorizations ................................................................................................................ VIII-2
Summary of Requirements .......................................................................................... VIII-21
Justification of Fixed Costs and Related Changes ...................................................... VIII-25
Activity: Land Resources ............................................................................................. VIII-27
Subactivity: Soil, Water, and Air Management ................................................. VIII-29
Subactivity: Rangeland Management .............................................................. VIII-35
Subactivity: Public Domain Forest Management ............................................. VIII-45
Subactivity: Riparian Management .................................................................. VIII-51
Subactivity: Cultural Resources Management ................................................. VIII-57
Subactivity: Wild Horse & Burro Management ................................................. VIII-63
Activity: Wildlife and Fisheries Management ............................................................... VIII-69
Subactivity: Wildlife Management .................................................................... VIII-71
Subactivity: Fisheries Management ................................................................. VIII-83
Activity: Threatened and Endangered Species Management ...................................... VIII-87
Activity: Recreation Management ................................................................................ VIII-93
Subactivity: Wilderness Management .............................................................. VIII-95
Subactivity: Recreation Resources Management ............................................ VIII-99
Activity: Energy and Minerals Management .............................................................. VIII-107
Subactivity: Oil and Gas Management ........................................................... VIII-109
Subactivity: Coal Management ...................................................................... VIII-121
Subactivity: Other Mineral Resources ............................................................ VIII-125
Subactivity: Renewable Energy Management ............................................... VIII-129
Activity: Realty and Ownership Management ............................................................ VIII-135
Subactivity: Alaska Conveyance and Lands .................................................. VIII-137
Subactivity: Cadastral Survey ........................................................................ VIII-145
Subactivity: Lands and Realty Management .................................................. VIII-151
Activity: Communication Site Management ............................................................... VIII-155
Activity: Resource Protection and Maintenance ........................................................ VIII-159
Subactivity: Resource Management Planning ............................................... VIII-161
Subactivity: Abandoned Mine Lands .............................................................. VIII-171
Subactivity: Resource Protection and Law Enforcement ............................... VIII-179
Subactivity: Hazardous Materials Management ............................................. VIII-187
Activity: Transportation and Facilities Maintenance ................................................... VIII-193
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Subactivity: Deferred Maintenance and Capital Improvements ..................... VIII-197
Subactivity: Annual Maintenance and Operational Costs .............................. VIII-203
Activity: National Landscape and Conservation System ........................................... VIII-207
Activity: Land and Resource Information Systems .................................................... VIII-215
Activity: Challenge Cost Share .................................................................................. VIII-217
Activity: Workforce and Organizational Support ........................................................ VIII-219
Subactivity: Information Systems Operations ................................................ VIII-231
Subactivity: Administrative Support ............................................................... VIII-233
Subactivity: Bureauwide Fixed Costs ............................................................. VIII-237
Subactivity: Information Technology Management ........................................ VIII-241
Activity: Mining Law Administration ........................................................................... VIII-245
Budget Schedules ...................................................................................................... VIII-253

IX. Construction .................................................................................................................. IX-1

Appropriations Language ................................................................................................. IX-1
Authorizations .................................................................................................................. IX-1
Summary of Requirements .............................................................................................. IX-2
Activity: Construction ....................................................................................................... IX-3
Budget Schedules ............................................................................................................ IX-4

X. Land Acquisition ............................................................................................................. X-1

Appropriations Language .................................................................................................. X-1
Appropriation Language Citations and Authorizations ...................................................... X-1
Summary of Requirements ............................................................................................... X-3
Justification of Fixed Costs and Related Changes ........................................................... X-3
Activity: Land Acquisition .................................................................................................. X-5
Subactivity: Land Acquisition ................................................................................ X-7
Subactivity: Inholding, Emergency and Hardship ............................................... X-31
Subactivity: Acquisition Management ................................................................. X-33
Budget Schedules ........................................................................................................... X-35

XI. Oregon and California Grant Lands ............................................................................. XI-1

Appropriations Language ................................................................................................. XI-1
Appropriations Language Citations and Authorization ..................................................... XI-1
Summary of Requirements .............................................................................................. XI-3
Justification of Fixed Costs and Related Changes .......................................................... XI-4
Appropriation Description ................................................................................................ XI-4
Activity: Western Oregon Acquisition ............................................................................. XI-13
Activity: Western Oregon Transportation and Facilities Maintenance ........................... XI-15
Activity: Western Oregon Resources Management ....................................................... XI-27
Activity: Western Oregon Information and Data Systems .............................................. XI-51
Activity: Western Oregon National Landscape Conservation System ........................... XI-53
Budget Schedules .......................................................................................................... XI-57

XII. Range Improvements ................................................................................................... XII-1

Appropriations Language ................................................................................................ XII-1
Appropriations Language Citations and Authorizations .................................................. XII-1
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Summary of Requirements ............................................................................................. XII-3
Appropriation: Range Improvements .............................................................................. XII-5
Budget Schedules ........................................................................................................... XII-9

XIII. Service Charges, Deposits, and Forfeitures ............................................................. XIII-1

Appropriations Language ............................................................................................... XIII-1
Appropriations Language Citations and Authorizations ................................................. XIII-1
Summary of Requirements ............................................................................................ XIII-3
Appropriation: Service Changes, Deposits, and Forfeitures (Indefinite) ........................ XIII-4
Budget Schedules .......................................................................................................... XIII-7

XIV. Miscellaneous Permanent Payments ......................................................................... XIV-1

Appropriations Language ............................................................................................... XIV-1
Explanation .................................................................................................................... XIV-1
Authorizations ................................................................................................................ XIV-2
Summary of Requirements ............................................................................................ XIV-6
Appropriation: Miscellaneous Permanent Payments ..................................................... XIV-7
2011 Total Payments of BLM Receipts to States and Counties .................................. XIV-12
Budget Schedules ........................................................................................................ XIV-13

XV. Permanent Operating Funds ....................................................................................... XV-1

Appropriations Language ................................................................................................ XV-1
Explanation ..................................................................................................................... XV-1
Authorizations ................................................................................................................. XV-1
Summary of Requirements ............................................................................................. XV-5
Appropriation: Permanent Operating Funds ................................................................... XV-6
Budget Schedules ......................................................................................................... XV-16

XVI. Miscellaneous Trust Funds ...................................................................................... XVI-1

Appropriations Language ............................................................................................... XVI-1
Explanation .................................................................................................................... XVI-1
Authorizations ................................................................................................................ XVI-2
Summary of Requirements ............................................................................................ XVI-3
Activity: Miscellaneous Trust Funds (Current and Permanent) ..................................... XVI-4
Budget Schedules .......................................................................................................... XVI-6

XVII. Helium Fund and Operations .................................................................................. XVII-1

Appropriations Language .............................................................................................. XVII-1
Explanation ................................................................................................................... XVII-1
Summary of Requirements ........................................................................................... XVII-2
Activity: Helium Fund and Operations .......................................................................... XVII-3
Budget Schedules ......................................................................................................... XVII-6

XVIII. Administrative Provisions ...................................................................................... XVIII-1

Appropriations Language ............................................................................................. XVIII-1
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Appropriations Language Citations .............................................................................. XVIII-1

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Bureau oof Land Manaagement 2013 Buddget Justificaations
E S
XECCUTIVVE UUMMAARY

Beatty Buttee Rangeland, Oregon

MMISSION

The misssion of the BBureau of Laand Manageement (BLMM) is to sustaain the health, diversityy, and
productivvity of the puublic lands foor the use annd enjoymennt of presentt and future generationss (see
the Fedeeral Land Maanagement PPolicy Act off 1976 (FLPMMA), P.L. 944-579).

BUREAAU OVERVIEW

The BLMM was established in 19446 through tthe consoliddation of thee General Laand Office (11812-
1946), and the U.S. Grazing Seervice (19344-1946). Its comprehensive missionn to manage the
public lannds for a variety of usess to benefit ppresent and future geneerations was codified witth the
passage of the FLPMMA in 1976.

The BLMM is responssible for the management and consservation of resources oon approximmately
248 millioon surface aacres, as weell as the fedderal governnment’s appproximately 7700 million aacres
of onshoore subsurfaace mineral estate. In addition, thee BLM has trust respoonsibilities oon 56
million accres of Indiaan trust landds for minerral operationns and cadaastral surveyys. Surface lands
under thee direct mannagement off the BLM mmake up abouut 13 percennt of the totaal land surfaace of
Chapter II – Executivee Summary Page I - 1
Bureau of Land Management 2013 Budget Justifications
the United States and more than 40 percent of all land managed by the Federal government,
making the BLM the Nation’s largest single land manager.

Located primarily in 11 western states, including Alaska, BLM-managed lands encompass a
broad diversity of habitats including extensive desert, grassland, sage-steppe, forest, high-
mountain, and arctic-tundra, landscapes. Some of the most ecologically pristine and
biophysically significant landscapes managed by the BLM are those in its 27-million-acre
National Landscape Conservation System (NLCS).

The diversity of BLM’s habitat and landscapes is matched by the diversity of uses that the BLM
manages. The BLM's unique multiple-use management of public lands includes activities as
varied as energy production, mineral development, livestock grazing, outdoor recreation, and
the conservation of natural, historical, cultural, and other important resources. Many of these
activities contribute to the vitality of State and local economies.

PROVIDING FOR THE NATION’S NEEDS

Management of natural and cultural resources and protection of American values on public
lands results in extraordinary economic and other benefits to local communities and to the
Nation. In addition, revenues generated from the public lands directly benefit the U.S. taxpayer.

According to analysis prepared for the 2010 Department of the Interior Economic Impact
Report1, extractive and non-extractive uses of BLM-managed lands and minerals generated an
estimated total economic output of slightly more than $127 billion nationwide in fiscal year 2010.
These activities supported approximately 500,000 full and part-time jobs nationwide (total
employment).

The BLM’s contribution to America’s energy portfolio constitutes a key component of these
economic benefits. During calendar year 2011, the BLM held 32 onshore oil and gas lease
sales, offering 1,755 parcels of land covering nearly 4.4 million acres. Of those, 1,296 were sold
– nearly three-quarters of those offered – generating about $256 million in revenue for American
taxpayers. Onshore mineral leasing revenues are estimated to be $4.4 billion in 2013.

The 2011 lease sale figures are 20 percent higher than those in calendar year 2010. The largest
sale in 2011 occurred in Billings, Montana, contributing more than $66 million for the American
taxpayers. There are currently approximately 38 million acres of oil and gas leases, and since
only about 32 percent of that acreage is currently in production, the BLM is working to provide
greater incentive for lessees to make production a priority.

In fiscal year 2011, the Department of the Interior collected royalty on more than 97 million
barrels of oil produced from onshore Federal minerals, and production of nearly 3 TCF (trillion
cubic feet) of natural gas made it one the most productive years on record. BLM-managed
Federal Coal leases power more than 20% of the energy generated in the United States. The
BLM is also actively promoting solar, wind, and geothermal energy development on Federal
lands. Nearly 40 percent of U.S. geothermal energy production capacity is on public lands.

The BLM contributes to local communities and the national economy in many ways other than

1 The 2011 Department of the Interior Economic Impact Report is scheduled to be published in June, 2012.
Chapter I – Executive Summary Page I - 2
Bureau of Land Management 2013 Budget Justifications
energy production. More than $5 billion in annual economic benefits are estimated to result from
timber- and grazing-related activities and non-energy mineral production from BLM-managed
forests, range, and mineral-estate lands (per the 2010 Report). Public land recreational activities
also provide major economic benefits to economies in nearby communities. More than 59
million recreational visits took place on BLM-managed lands in 2011 alone. Recreational
hunters, off-road vehicle enthusiasts, mountain bikers, backpackers, anglers, and
photographers discover endless opportunities on BLM-managed lands. These and many other
recreational opportunities are vital to the quality of life enjoyed by residents of, and national and
international visitors to, the increasingly urbanized western states.

2013 BUDGET OVERVIEW

The BLM’s budget request allows the BLM to participate in a number of important initiatives,
including the America’s Great Outdoors and the New Energy Frontier, and to implement a
number of BLM priorities such as restoring landscapes and conserving habitat for sage grouse,
expanding research into population controls for wild horses, and reforming hardrock mining on
the public lands. The Budget makes strategic funding shifts to target high-priority initiatives,
scales back on lower-priority programs, and sustain and expand energy program activities while
minimizing the costs to taxpayers by shifting $48.0 million in inspection costs to industry. BLM
will also emphasize management reforms to curb administrative expenses through
improvements in information technology, employee travel, and other means.

The budget also puts forth several important legislative proposals, including proposals to charge
a fee on hardrock mining on Federal and non-Federal lands, institute a leasing system for
certain hardrock minerals on public lands, collect fees to be used to remediate abandoned
mines, charge a fee on new nonproducing oil and gas leases to encourage diligent
development, repeal oil and gas mandatory funds, and reauthorize the Federal Land
Transaction Facilitation Act.

The total 2013 budget request is $1.1 billion in current authority approximately level with 2012
enacted. The budget proposes $952.0 million for the Management of Lands and Resources
Appropriation and $112.0 million for the Oregon and California Grant Lands Appropriation, the
BLM’s two main operating accounts. This represents a net decrease of $8.2 million for these
two accounts from the 2012 enacted level. The budget change is largely the result of a proposal
to shift the cost of oil and gas inspections to industry fees, which allows for a significant
reduction in the request for appropriated dollars. The table below summarizes the 2013 budget
request by types of appropriation.

Table 1: Total 2013 BUDGET REQUEST ($000s)
2013 2013 PB
2011 2012
Budget Authority President's vs. 2012
Actual Enacted
Budget Enacted
Current Discretionary 1,113,936 1,098,139 1,097,635 -504
Current Mandatory 35,435 29,700 29,700 +0
Total Current 1,149,371 1,127,839 1,127,335 -504
Permanent 150,012 149,151 178,086 +28,935
Total Current and Permanent 1,299,383 1,276,990 1,305,421 +28,431
FTEs 10,635 10,489 10,365 -124
Chapter I – Executive Summary Page I - 3