Land Use Planning Handbook

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H-1601-1 – LAND USE PLANNING HANDBOOK – (Public)United StatesDepartment of the InteriorBureau of Land ManagementLand Use Planning HandbookBLM Handbook H-1601-1

TC - 1H-1601-1 — LAND USE PLANNING HANDBOOK – (Public)Table of ContentsI.Introduction .1A. The Purpose of This Handbook and the Need for Planning Guidance .1B. The Basic Planning Process .2C. Forms of Public and Intergovernmental Involvement.2D. Collaborative Planning.4E. Coordination and Cooperation with Other Federal Agenciesand State and Local Governments .5F. Government-to-Government Coordination with Indian Tribes.9II. Land Use Plan Decisions.11A. Introduction.11B. Types of Land Use Plan Decisions .12C. Geographic Areas.14D. Scale of Planning .14E. Multijurisdictional Planning.15F. Establishing Management Direction for Lands that MayCome Under the BLM Jurisdiction in the Future. .15III. Land Use Planning Process and Products.16A. Planning for Environmental Impact Statement-level Efforts.16B. Planning for Environmental Assessment-level Efforts .25IV. Implementation .29A. Implementing Land Use Plans .29B. Defining Implementation Decisions.29C. Making Implementation Decisions .30D. Making Land Use Plan and Implementation Decisionsin the Same Planning Effort.30E. Developing Strategies to Facilitate Implementation of Land Use Plans.31V. Monitoring, Evaluation, and Adaptive Management.32A. Monitoring .32B. Evaluation.33C. Adaptive Management .36VI. Determining if New Decisions are Required.37A. Specific Regulatory Requirements for Considering NewInformation or Circumstances.37B. Considering New Proposals, Circumstances, or Information .37C. Deciding Whether Changes in Decisions or the SupportingNEPA Analyses are Warranted.38D. Documenting the Determination to Modify, orNot to Modify, Decisions or NEPA Analysis.41E. Evaluating New Proposals.41F. Plan Conformance .42G. Plan Conformance and Ongoing NEPA Activities .42H. Determining When to Update Land Use Plan DecisionsThrough Maintenance Actions.44BLM MANUALSupersedes Rel. 1-1667Rel. 1-169303/11/05

TC - 2H-1601-1 — LAND USE PLANNING HANDBOOK – (Public)VII. Amending and Revising Decisions .44A. Changing Land Use Plan Decisions.44B. Determining When it is Necessary to Amend Plans andHow it is Accomplished.45C. Determining When it is Necessary to Revise an RMP or Replace an MFP.46D. Changing Implementation Decisions .46E. Status of Existing Decisions During the Amendment or Revision Process .47F. Coordinating Simultaneous Planning/NEPA Processes .47Glossary of Terms and Acronyms .Glossary - 1Terms .Glossary - 1Acronyms.Glossary - 9Appendix A: Guide to Collaborative Planning.Appendix A, page 1I. Principles .Appendix A, page 1II. Practices .Appendix A, page 2III. Benefits .Appendix A, page 3IV. Tools .Appendix A, page 3Appendix B: Federal Advisory Committee Act Considerations.Appendix B, page 1I. Purpose .Appendix B, page 1II. Implementing FACA.Appendix B, page 1A. Avoiding Violations.Appendix B, page 1B. Determining if FACA Applies .Appendix B, page 2C. FACA Requirements .Appendix B, page 2Appendix C: Program-Specific and Resource-Specific Decision Guidance .Appendix C, page 1I. Natural, Biological, and Cultural Resources .Appendix C, page 2A. Air .Appendix C, page 2B. Soil and Water.Appendix C, page 2C. Vegetation .Appendix C, page 3D. Special Status Species.Appendix C, page 4E. Fish and Wildlife .Appendix C, page 6F. Wild Horses and Burros.Appendix C, page 7G. Cultural Resources .Appendix C, page 8H. Paleontology.Appendix C, page 10I. Visual Resources .Appendix C, page 11J. Wildland Fire Management.Appendix C, page 11K. Wilderness Characteristics.Appendix C, page 12L. Cave and Karst Resources .Appendix C, page 13II. Resource Uses .Appendix C, page 13A. Forestry .Appendix C, page 13B. Livestock Grazing .Appendix C, page 14C. Recreation and Visitor Services .Appendix C, page 15D. Comprehensive Trails and Travel Management .Appendix C, page 17E. Lands and Realty .Appendix C, page 20BLM MANUALSupersedes Rel. 1-1667Rel. 1-169303/11/05

TC - 3H-1601-1 — LAND USE PLANNING HANDBOOK – (Public)F. Coal.Appendix C, page 21G. Oil Shale .Appendix C, page 23H. Fluid Minerals: Oil and Gas, Tar Sands, andGeothermal Resources .Appendix C, page 23I. Locatable Minerals Appendix C, page 24J. Mineral Materials .Appendix C, page 25K. Non-energy Leasable Minerals .Appendix C, page 26III. Special Designations.Appendix C, page 27A. Congressional Designations.Appendix C, page 27B. Administrative Designations .Appendix C, page 27IV. Support.Appendix C, page 28A. Cadastral.Appendix C, page 29B. Interpretation and Environmental Education .Appendix C, page 29C. Transportation Facilities .Appendix C, page 30Appendix D: Social Science Considerations in Land UsePlanning Decisions.Appendix D, page 1I. Using Social Science in Land Use Planning .Appendix D, page 1II. Incorporating Socio-economic Information .Appendix D, page 2A. The Planning Process .Appendix D, page 2B. Objectives of the Analysis.Appendix D, page 2C. The Scope of Analysis.Appendix D, page 4D. Deliverables in Contracting .Appendix D, page 8E. Analytic Guidelines .Appendix D, page 8III. Public Involvement .Appendix D, page 10A. Integrating Social Science into Public Involvement .Appendix D, page 10B. Economic Strategies Workshop .Appendix D, page 10IV. Environmental Justice Requirements .Appendix D, page 11A. BLM’s Environmental Justice Principles .Appendix D, page 11B. Incorporating Environmental Justice Efforts in theRMP/EIS Process.Appendix D, page 12C. Documentation and Analysis .Appendix D, page 13V. Data Management .Appendix D, page 13A. Types of Data .Appendix D, page 13B. Data Quality and Analytic Soundness.Appendix D, page 13C. Paperwork Reduction Act Requirements forNew Data Collection.Appendix D, page 14VI. Data Sources .Appendix D, page 14A. Use of the Economic Profile System .Appendix D, page 14B. References .Appendix D, page 15C. Environmental Justice References .Appendix D, page 17VII. Further Guidance.Appendix D, page 17Appendix E: Summary of Protest and Appeal Provisions .Appendix E, page 1I. Land Use Plan Protests .Appendix E, page 1A. Washington Office Initial Evaluation of Protests .Appendix E, page 1BLM MANUALSupersedes Rel. 1-1667Rel. 1-169303/11/05

TC - 4H-1601-1 — LAND USE PLANNING HANDBOOK – (Public)B. State Office Evaluation and Determination .Appendix E, page 4C. Washington Office Final Review.Appendix E, page 6D. Receiving, Managing, and Responding to Electronic Mailand Faxed Protests .Appendix E, page 12E. State Director’s Protest Analysis.Appendix E, page 13II. Governor’s Consistency Review Appeal Process .Appendix E, page 14III. Administrative Remedies of Implementation Decisions .Appendix E, page 14Appendix F: Standard Formats for Land Use Plan Documents.Appendix F, page 1Appendix F-1: Recommended Format for Preparation Plans.Appendix F, page 1Appendix F-2: Recommended Format for Scoping Reports .Appendix F, page 4Appendix F-3: Annotated Outline of the Analysis of theManagement Situation .Appendix F, page 6Appendix F-4: Annotated Outline for a Draft andFinal RMP (Amendment)/EIS .Appendix F, page 14Appendix F-5: Annotated Outline for Record of Decision(ROD)/Approved RMP (Amendment) .Appendix F, page 20Appendix F-6: Recommended Administrative Record FilePlan for Land Use Planning Projects .Appendix F, page 24Appendix G: Managing and Applying Data and Information .Appendix G, page 1I. Metadata Standards and Requirements.Appendix G, page 1II. Identifying Data Needs for a Land Use Plan.Appendix G, page 1III. Data Sources .Appendix G, page 2IV. Managing Data During Land Use Plan Development .Appendix G, page 2V. Integrating Data Application and Display .Appendix G, page 3BLM MANUALSupersedes Rel. 1-1667Rel. 1-169303/11/05

1H-1601-1 — LAND USE PLANNING HANDBOOK – (Public)I. IntroductionA. The Purpose of This Handbook and the Need for Planning GuidanceThis Handbook provides supplemental guidance to the Bureau of Land Management (BLM)employees for implementing the BLM land use planning requirements established by Sections201 and 202 of the Federal Land Policy and Management Act of 1976 (FLPMA, 43 U.S.C. 17111712) and the regulations in 43 Code of Federal Regulations (CFR) 1600. Land use plans andplanning decisions are the basis for every on-the-ground action the BLM undertakes. Land useplans include both resource management plans (RMPs) and management framework plans(MFPs).Land use plans ensure that the public lands are managed in accordance with the intent ofCongress as stated in FLPMA (43 U.S.C. 1701 et seq.), under the principles of multiple use andsustained yield. As required by FLPMA and BLM policy, the public lands must be managed in amanner that protects the quality of scientific, scenic, historical, ecological, environmental, airand atmospheric, water resource, and archaeological values; that, where appropriate, willpreserve and protect certain public lands in their natural condition; that will provide food andhabitat for fish and wildlife and domestic animals; that will provide for outdoor recreation andhuman occupancy and use; and that recognizes the Nation’s need for domestic sources ofminerals, food, timber, and fiber from the public lands by encouraging collaboration and publicparticipation throughout the planning process. Land use plans are one of the primarymechanisms for guiding BLM activities to achieve the mission and goals outlined in theDepartment of the Interior (DOI) Strategic Plan.This Handbook provides guidance for preparing, revising, amending, and maintaining land useplans. This Handbook also provides guidance for developing subsequent implementation(activity-level and project-specific) plans and decisions. It builds on field experience gained inimplementing the 1983 planning regulations (43 CFR 1600), subsequent BLM Manual guidance,and the 2000 Handbook. This guidance does not, however, change or revise the planningregulations in 43 CFR 1600, which take precedence over this Handbook. Definitions for termsused in this Handbook are found in the glossary and in the BLM planning regulations in 43 CFR1601.0-5.Any interpretation of the guidance contained in this Handbook is subservient to the legal andregulatory mandates contained in FLPMA, 43 CFR 1600, the National Environmental Policy Actof 1969 (NEPA, 42 U.S.C. 4321 et seq.), the Council on Environmental Quality (CEQ)regulations at 40 CFR 1500-1508, and other applicable Federal laws and regulations. Thisplanning guidance:1. Encourages planning on a variety of scales, including both local and regional, inpartnership with other landowners and agencies;2. encourages active public participation throughout the planning process and facilitatesmultijurisdictional planning;BLM MA

H-1601-1 — LAND USE PLANNING HANDBOOK – (Public) 1 I. Introduction A. The Purpose of This Handbook and the Need for Planning Guidance This Handbook provides supplemental guidance to the Bureau of Land Management (BLM) employees for implementing the BLM land u

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