[Federal Register Volume 82, Number 12 (Thursday, January 19, 2017)]
[Presidential Documents]
[Pages 6179-6184]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2017-01383]


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  Federal Register / Vol. 82 , No. 12 / Thursday, January 19, 2017 / 
Presidential Documents  

[[Page 6179]]


                Memorandum of January 12, 2017

                
Promoting Diversity and Inclusion in Our National 
                Parks, National Forests, and Other Public Lands and 
                Waters

                Memorandum for the Heads of Executive Departments and 
                Agencies

                Our Federal lands and waters are among our Nation's 
                greatest treasures--from our National Parks and 
                National Forests, to our wild and scenic rivers, 
                recreation areas, and other public lands and waters. 
                These natural and historic sites give us fresh air and 
                clean water, places for recreation and inspiration, and 
                support for our local communities and economies. As a 
                powerful sign of our democratic ideals, these lands 
                belong to all Americans--rich and poor, urban and 
                rural, young and old, from all backgrounds, genders, 
                cultures, religious viewpoints, and walks of life.

                Our public lands and waters are treasured in part 
                because they tell the story of our Nation. They 
                preserve the history from our Nation's wars, protect 
                cultural sites considered sacred to countless 
                Americans, and honor the accomplishments of distinctly 
                American leaders ranging from Harriet Tubman to Abraham 
                Lincoln to Cesar Chavez. I am proud that my 
                Administration has greatly expanded the stories that 
                our protected public lands and waters tell about our 
                Nation through designating a diverse collection of 
                cultural and historic sites as new parks and monuments 
                and by restoring the Koyukon Athabascan name of Denali 
                to the tallest mountain in North America. I am proud, 
                too, that my Administration has sought to expand access 
                to our public lands and waters and to make them more 
                welcoming to all Americans, especially those who have 
                not regularly visited our Nation's great outdoors or 
                had the means to do so easily. Initiatives like ``Every 
                Kid in a Park'' complement additional, ongoing efforts 
                by Federal agencies to improve accessibility, but more 
                work must be done to honor the promise and opportunity 
                of the idea that our public lands belong to every 
                American. Over the last 8 years, Federal land and water 
                management agencies have also shown a renewed 
                commitment to promoting equal opportunity for all 
                employees and in creating work environments where 
                everyone is empowered to reach their full potential.

                The purpose of this memorandum is to ensure that all 
                Americans have the opportunity to experience and enjoy 
                our public lands and waters, that all segments of the 
                population have the chance to engage in decisions about 
                how our lands and waters are managed, and that our 
                Federal workforce--not just the sites it manages--is 
                drawn from the rich range of the diversity in our 
                Nation. In this memorandum, ``diversity'' refers to a 
                range of characteristics including national origin, 
                language, race, color, disability, ethnicity, age, 
                religion, sexual orientation, gender (including gender 
                identity), socioeconomic status, veteran status, and 
                family structure. The term ``inclusion'' refers to a 
                culture that connects each employee to the 
                organization; encourages collaboration, flexibility, 
                and fairness; and promotes diversity throughout the 
                organization so that all individuals have opportunities 
                to participate and contribute to their full potential.

                This memorandum is directed at the Department of the 
                Interior, the U.S. Forest Service, the Office of the 
                Assistant Secretary of the Army for Civil Works, and 
                the National Oceanic and Atmospheric Administration 
                (covered agencies).

[[Page 6180]]

                Promoting diversity and inclusion is not the sole 
                responsibility of one office within a Federal agency 
                but a joint effort that requires engagement by senior 
                leadership and the entire workforce. In implementing 
                the guidance in this memorandum, each covered agency 
                shall ensure its diversity and inclusion practices are 
                fully integrated into broader planning efforts and 
                supported by sufficient resource allocations and 
                effective programs that promote a wide range of 
                investments in personnel development, public 
                engagement, and opportunities for inclusive access.

                Therefore, by the authority vested in me as President 
                by the Constitution and the laws of the United States 
                of America, I hereby direct the following:

                Section 1. Diversity and Inclusion in the Federal 
                Workforce. The quality and integrity of our National 
                Parks, National Forests, and other public lands and 
                waters depend on the public servants who steward them 
                for the benefit of current and future generations. To 
                ensure we are managing these resources responsibly, we 
                must have a diverse and inclusive Federal workforce 
                practicing public land management that recognizes the 
                challenges facing communities across the Nation. A more 
                diverse and inclusive Federal workforce also creates a 
                more welcoming experience for all Americans, no matter 
                their background or where they live, and encourages 
                engagement with Federal agencies on the management and 
                future of our public lands and waters. Consistent with 
                existing authorities, each covered agency shall 
                prioritize building a more diverse and inclusive 
                Federal workforce reflective of our Nation and its 
                citizens.

                Federal agencies are subject to existing authorities 
                aimed at addressing the leadership role and obligations 
                of the Federal Government as an employer. For example, 
                Executive Order 13583 of August 18, 2011 (Establishing 
                a Coordinated Government-wide Initiative to Promote 
                Diversity and Inclusion in the Federal Workforce), 
                requires Federal agencies to take action to promote 
                equal opportunity, diversity, and inclusion in the 
                Federal workforce. Federal agencies also are required 
                by section 717 of title VII of the Civil Rights Act of 
                1964 to take proactive steps to ensure equal 
                opportunity for all Federal employees and applicants 
                for Federal employment. This memorandum directs each of 
                the covered agencies to pursue additional actions that 
                create and maintain a diverse and inclusive Federal 
                workforce. Toward that end, each covered agency shall 
                integrate the following activities in its efforts to 
                comply with related statutory mandates, Executive 
                Orders, regulatory requirements, and individual agency 
                policies:

                    (a) Provide professional development opportunities 
                and tools. A diverse and inclusive work environment 
                enhances the ability of each covered agency to create, 
                retain, and sustain a strong workforce by allowing all 
                employees to perform to their full potential and 
                talent. Professional development opportunities and 
                tools are key to fostering that potential, and ensuring 
                that all employees have access to them should be a 
                priority for all agencies, consistent with merit system 
                principles. Accordingly, each covered agency shall:

(i) Develop a mechanism to conduct periodic interviews with a voluntary 
representative cross-section of its workforce to gain a more complete 
understanding of the reasons that employees choose to stay with their 
organizations, as well as to receive feedback on workplace policies, 
professional development opportunities, and other issues;

(ii) Provide optional exit interviews or surveys for all departing 
personnel;

(iii) Collect information as needed to identify methods for attracting 
applicants to Federal employment and retaining diverse workplace talent 
through existing workforce programs and initiatives;

(iv) Prioritize resources, as appropriate, to expand professional 
development opportunities that support mission needs, such as academic and 
fellowship programs, private-public exchanges, and detail assignments to 
private or international organizations, State, local and tribal 
governments, or other branches of the Federal Government;

[[Page 6181]]

(v) Offer, or sponsor employees to participate in, a Senior Executive 
Service Candidate Development Program or other program that trains 
employees to gain the skills required for senior-level appointments. Each 
covered agency shall consider the number of expected senior-level vacancies 
as one factor in determining the number of candidates to select for such 
programs. In the selection process for these programs, each covered agency 
shall consider redacting personal information, including applicant names, 
from all materials provided for review to reduce the potential for 
unconscious bias. Each covered agency also shall evaluate on a retroactive 
basis the placement rate of program graduates into senior-level positions, 
including available demographic data, on an annual basis to look for ways 
to improve outreach and recruitment for these programs consistent with 
merit system principles. Each covered agency shall consult with the Office 
of Personnel Management (OPM) on the development or enhancement of data-
collection tools to conduct these evaluations; and

(vi) Seek additional opportunities for the development and implementation 
of upward mobility programs.

                    (b) Strengthen leadership engagement and 
                accountability. Senior leadership and supervisors play 
                an important role in fostering diversity and inclusion 
                in the workforce they lead and setting an example for 
                cultivating this and future generations of talent. 
                Toward that end, each covered agency shall:

(i) Reward and recognize efforts to promote diversity and inclusion in the 
workforce. Consistent with merit system principles, each covered agency is 
strongly encouraged to consider implementing performance and advancement 
requirements that reward and recognize senior leaders' and supervisors' 
success in fostering diverse and inclusive workplace environments and in 
cultivating talent, such as through participation in mentoring programs or 
sponsorship initiatives, recruitment events, and other opportunities. Each 
covered agency also is encouraged to identify opportunities for senior 
leadership and supervisors to participate in outreach events and discuss 
issues related to promoting diversity and inclusion in its workforce on a 
regular basis with support from any existing employee resource group, as 
appropriate; and

(ii) Expand training on unconscious bias, diversity and inclusion, and 
flexible work policies. Each covered agency shall expand its provision of 
training on unconscious bias, diversity and inclusion, and flexible work 
policies and make unconscious bias training mandatory for senior leadership 
and management positions, including for employees responsible for outreach, 
recruitment, hiring, career development, promotion, and law enforcement. 
The provision of training may be implemented in a phased approach 
commensurate with agency resources. Each covered agency shall also make 
available training on a 2-year cycle for bureaus, directorates, or 
divisions for which inclusion scores, such as those measured by the New IQ 
index, demonstrate no improvement since the previous training cycle. 
Special attention should be given to ensure the continuous incorporation of 
research-based best practices, including those to address the relationship 
between certain demographics and job positions.

                    (c) Analyze existing data and identify 
                opportunities for improvement. Each covered agency 
                shall continue to evaluate and eliminate existing 
                barriers to the successful growth of diversity and 
                inclusion in the Federal workplace. The following 
                actions shall be taken to ensure continued progress on 
                this issue:

(i) Each covered agency shall integrate the activities described under 
subsections (a) and (b) of this section in the priorities and actions 
outlined in Executive Order 13583 and the periodic agency self-assessments 
and barrier analyses required by Equal Employment Opportunity Commission 
Management Directive 715, and shall make such assessments and analyses 
publicly available;

(ii) Human resources and any appropriate diversity and leadership staff 
from each of the covered agencies shall meet at least twice each year

[[Page 6182]]

with agency leadership to discuss actions pursued under sections 1(a) and 
1(b) of this memorandum, including working to identify and eliminate 
barriers to promoting diversity and inclusion in agency workforces and to 
discuss potential actions to improve hiring programs, recruitment, and 
workforce training and development. Where data gaps are identified, each 
covered agency is encouraged to collect additional information as needed in 
order to identify methods for attracting and retaining talent from diverse 
populations, with particular attention to senior and management positions. 
Each covered agency shall consult with OPM on the development or 
enhancement of data-collection tools to collect this information; and

(iii) OPM shall continue to review covered agency-specific diversity and 
inclusion plans and provide recommended modifications for agency 
consideration, including recommendations on strategies to promote diversity 
and inclusion in agency workforces and potential improvements to the use of 
existing agency hiring authorities.

                Sec. 2. Enhancing Opportunities for all Americans to 
                Experience Public Lands and Waters. (a) Recognizing 
                that our public lands belong to all Americans, it is 
                critical that all Americans can experience Federal 
                lands and waters and the benefits they provide, and 
                that diverse populations are able to provide input to 
                inform the management and stewardship of these 
                important resources. In order to achieve this goal, 
                each covered agency shall:

(i) Identify site-specific opportunities. As each covered agency 
periodically updates or develops new management plans for its lands and 
waters, it shall evaluate specific barriers and opportunities, as 
appropriate, to improve visitation, access, and recreational opportunities 
for diverse populations;

(ii) Update policies to ensure engagement with diverse constituencies. As 
policy manuals and handbooks are updated, each covered agency shall ensure 
that these materials reflect the importance of engaging with diverse 
populations in resource protection, land and water management, and program 
planning and decisionmaking, as appropriate;

(iii) Establish internal policies for recipients of Federal funding. Each 
covered agency shall ensure that State, local, tribal, and private sector 
recipients of Federal funding are taking action to improve visitation, 
access, and recreational opportunities for diverse populations;

(iv) Identify public liaisons. Within 90 days of the issuance of this 
memorandum, each covered agency shall identify multiple public liaisons 
with a diversity of backgrounds and perspectives to be charged with 
facilitating input from and engaging with diverse populations in land and 
water management processes;

(v) Identify opportunities on advisory councils and stakeholder committees. 
Within 120 days of the issuance of this memorandum, each covered agency 
shall identify opportunities to promote participation by diverse 
populations in advisory councils and stakeholder committees established to 
support public land or water management; environmental, public health, or 
energy development planning; and other relevant decisionmaking; and

(vi) Develop an action plan. Within 1 year of the issuance of this 
memorandum, each covered agency shall provide a publicly available action 
plan to the Chair of the White House Council on Environmental Quality 
identifying specific actions the agency will take to 1) improve access for 
diverse populations--particularly for minority, low-income, and disabled 
populations and tribal communities--to experience and enjoy our Federal 
lands and waters, and 2) address barriers to their participation in the 
protection and management of important historic, cultural, or natural 
areas. Each covered agency shall identify in its action plan any critical 
barriers to achieving both of these goals. This barrier evaluation should 
draw on internal staff input as well as external perspectives, including 
interviews, surveys, and engagement with non-governmental entities, as

[[Page 6183]]

appropriate and as resources allow. Each action plan should include 
specific steps that the covered agency will take to address identified 
barriers, including national as well as regional strategies, and, where 
appropriate, site-specific initiatives. Each covered agency should work 
through the Federal Recreation Council (FRC) to assist with the development 
of this action plan and use the FRC to share best practices and 
recommendations regarding specific programs and initiatives.

                    (b) In identifying actions to improve opportunities 
                for all Americans to experience our Federal lands and 
                waters, each covered agency should consider a range of 
                actions including the following:

(i) Conducting active outreach to diverse populations--particularly 
minority, low-income, and disabled populations and tribal communities--to 
increase awareness about specific programs and opportunities;

(ii) Focusing on the mentoring of new environmental, outdoor recreation, 
and preservation leaders to increase diverse representation in these areas 
and on our public lands;

(iii) Forging new partnerships with State, local, tribal, private, and non-
profit partners to expand access for diverse populations, particularly 
those in the immediate vicinity of a protected area;

(iv) Identifying and making improvements to existing programs to increase 
visitation and access by diverse populations--particularly minority, low-
income, and disabled populations and tribal communities;

(v) Creating new programs, especially those that could address certain gaps 
that are identified;

(vi) Expanding the use of multilingual and culturally appropriate 
materials, including American Sign Language, in public communications and 
educational strategies, including through social media strategies, as 
appropriate, that target diverse populations;

(vii) Continuing coordinated, interagency efforts to promote youth 
engagement and empowerment, including fostering new partnerships with 
diversity- and youth-serving organizations and new partnerships with urban 
areas and programs; and

(viii) Identifying possible staff liaisons to diverse populations, 
particularly those in the immediate vicinity of a given protected area.

                    (c) In identifying actions to improve opportunities 
                for all Americans to participate in the protection and 
                management of important historic, cultural, and natural 
                areas, each covered agency shall consider a range of 
                actions including the following:

(i) Considering recommendations and proposals from diverse populations to 
protect at-risk historic, cultural, and natural sites;

(ii) Improving the availability and distribution of relevant information 
about ongoing land and water management planning and policy revisions;

(iii) Identifying agency staff charged with outreach to diverse 
populations;

(iv) Identifying opportunities to facilitate public participation from 
interested diverse populations facing financial barriers, including through 
partnerships, where appropriate, with philanthropic organizations and 
tribal, State, and local governments; and

(v) Taking other actions to increase opportunities for diverse populations 
to provide input and recommendations on protecting, improving access to, or 
otherwise managing important historic, cultural, or natural areas, with an 
emphasis on stakeholders facing significant barriers to participation.

                Sec. 3. General Provisions. (a) Nothing in this 
                memorandum shall be construed to impair or otherwise 
                affect:

(i) the authority granted by law to an executive department or agency, or 
the head thereof, or the status of that department or agency within the 
Federal Government; or

[[Page 6184]]

(ii) the functions of the Director of the Office of Management and Budget 
relating to budgetary, administrative, or legislative proposals.

                    (b) This memorandum shall be implemented consistent 
                with applicable law, and subject to the availability of 
                appropriations.
                    (c) The Secretary of the Interior is hereby 
                authorized and directed to publish this memorandum in 
                the Federal Register.
                
                
                    (Presidential Sig.)

                THE WHITE HOUSE,

                    Washington, January 12, 2017.

[FR Doc. 2017-01383
Filed 1-18-17; 8:45 am]
Billing code 4310-10-P