Land Ownership: Information on the Acreage, Management, and Use of
Federal and Other Lands (Letter Report, 03/13/96, GAO/RCED-96-40).
Pursuant to a congressional request, GAO reviewed the federal
government's ownership, management, use, and regulation of lands in the
United States, focusing on: (1) changes in the ownership of lands
managed by the four major land management agencies from June 1964
through September 1994; (2) changes in the number of acres managed for
conservation; (3) nonfederal acreage that is subject to federal rights
of use such as easements and leases; (4) acreage held in trust for
Native Americans; (5) acreage owned by 13 selected western states; and
(6) acreage transferred by three nonprofit organizations.
GAO found that: (1) between June 1964 and September 1994, the acreage
managed by the four major land management agencies decreased from 700.8
million acres to about 622.8 million acres; (2) the Bureau of Land
Management transferred significant acreage to the other agencies,
Alaska, and Native Alaskans; (3) the Fish and Wildlife Service, the
National Park Service, and the Forest Service increased the total acres
that they manage; (4) about 43.7 percent of the acreage these agencies
manage are for conservation purposes; (5) as of September 1994, the
federal government had rights-of-use through leases, agreements,
permits, and easements to over 3 million acres of nonfederal land,
usually to support the management of adjacent federal lands; (6) in
1995, the federal government held about 52.3 million acres in 33 states
in trust for Native Americans; (7) as of September 1994, the 13 western
states owned about 141.9 million acres; and (8) between 1964 and
September 1994, three nonprofit organizations transferred about 3.2
million acres to other public and private entities through sales,
donations, and exchanges.
--------------------------- Indexing Terms -----------------------------
REPORTNUM: RCED-96-40
TITLE: Land Ownership: Information on the Acreage, Management, and
Use of Federal and Other Lands
DATE: 03/13/96
SUBJECT: Land management
Public lands
Land transfers
Non-profit organizations
State governments
Wildlife conservation
Property rights procurement
Native Americans
National parks
National forests
IDENTIFIER: Alaska
Arizona
California
Colorado
Idaho
Montana
Nevada
New Mexico
Oregon
Texas
Utah
Washington
Wyoming
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Cover
================================================================ COVER
Report to Congressional Requesters
March 1996
LAND OWNERSHIP - INFORMATION ON
THE ACREAGE, MANAGEMENT, AND USE
OF FEDERAL AND OTHER LANDS
GAO/RCED-96-40
Acreage, Management, and Use of Federal and Other Lands
(140101)
Abbreviations
=============================================================== ABBREV
Letter
=============================================================== LETTER
B-270582
March 13, 1996
The Honorable Don Young
Chairman, Committee on Resources
House of Representatives
The Honorable Richard Pombo
House of Representatives
Over the years, the Congress has discussed the federal government's
ownership, management, and use of lands in the United States, as well
as the effects of federal (primarily environmental) regulations on
the use of both public and nonfederal lands. In response to your
request for information on these topics, we reported to you in
January 1995 on changes in the amount of federally owned land and in
the acreage managed for conservation.\1
As you requested, this report updates our earlier work through
September 1994 with the latest data available. Specifically, it
provides information on changes in (1) the ownership of the lands
managed by the four primary federal land management agencies--the
U.S. Department of Agriculture's Forest Service and the Department
of the Interior's Bureau of Land Management, Fish and Wildlife
Service, and National Park Service--from June 1964 through September
1994 and (2) the number of acres managed for conservation. This
report also includes information on the (1) nonfederal acreage that
is subject to federal rights-of-use such as easements and leases, (2)
acreage held in trust for Indians, (3) acreage owned by 13 selected
western states,\2 and (4) acreage involved in the land transactions
of three nonprofit organizations--the Nature Conservancy, The
Conservation Fund, and The Trust for Public Land.\3 Appendix I
contains, among other things, supplemental information on (1) the
means by which the four federal agencies acquired acreage and their
plans for acquiring additional acreage, (2) federal acreage where
hunting is not allowed, and (3) nonfederal acreage affected by
selected environmental regulations.
--------------------
\1 Federal Lands: Information on Land Owned and on Acreage With
Conservation Restrictions (GAO/RCED-95-73FS, Jan. 30, 1995).
\2 We selected 12 western states--Alaska, Arizona, California,
Colorado, Idaho, Montana, Nevada, New Mexico, Oregon, Utah,
Washington, and Wyoming--because the federal government owns at least
25 percent of the acreage in each of these states. In addition, you
asked us to include Texas.
\3 We selected these three organizations because they were the
nonprofit organizations that transferred the most acreage to one or
more of the four federal land management agencies during the 1990s.
RESULTS IN BRIEF
------------------------------------------------------------ Letter :1
Data from the four major federal land management agencies show that
the total acreage under their management decreased from about 700.8
million acres to about 622.8 million acres between June 1964 and
September 1994. Of the 622.8 million acres, about 272 million acres
(43.7 percent) were managed primarily for conservation and thus had
some limitations on their use.
Information on the acreage subject to federal rights-of-use, held in
trust for Indians, owned by states, and involved in the land
transactions of selected nonprofit organizations showed the
following:
As of September 1994, the federal government had obtained
rights-of-use for about 3 million acres of nonfederal land.
The federal government held about 52.3 million acres in trust for
individual Indians and Indian tribes in 1995.
Thirteen western states collectively owned about 142 million acres.
The three nonprofit organizations transferred (by selling,
donating, or exchanging) about 3.2 million acres to other public
and private entities between 1964 and September 1994.
BACKGROUND
------------------------------------------------------------ Letter :2
The federal government owns about 30 percent of the nation's total
surface area (about 650 million acres). Four major federal land
management agencies--the Forest Service, Bureau of Land Management,
Fish and Wildlife Service, and National Park Service--are responsible
for managing about 95 percent of these lands. The Department of
Defense manages most of the remainder.
Each of the four major federal land management agencies manages its
lands and the resources they contain on the basis of its mission and
responsibilities. The Forest Service and the Bureau of Land
Management manage lands for a variety of uses, including recreation,
timber harvesting, livestock grazing, oil and gas production, mining,
and wilderness protection. The Fish and Wildlife Service manages
lands primarily to conserve and protect fish and wildlife and their
habitat, although other uses, such as hunting and fishing, are
allowed when they are compatible with the primary purposes for which
the lands are managed. The National Park Service manages lands to
conserve, preserve, protect, and interpret the nation's natural,
cultural, and historic resources.
FEDERAL ACREAGE AND ACREAGE
MANAGED FOR CONSERVATION
------------------------------------------------------------ Letter :3
The acreage managed by the four major federal land management
agencies decreased by 78 million acres, from about 700.8 million
acres to about 622.8 million acres, between June 30, 1964, and
September 30, 1994. The change in the total number of acres managed
by the four land management agencies during this 30-year period is
shown in figure 1.
Figure 1: Acreage Managed by
the Four Federal Agencies,
Fiscal Years 1964 and 1994
(See figure in printed
edition.)
As we reported earlier, the overall decrease in the number of acres
managed during this period occurred because a significant number of
the acres managed by the Bureau of Land Management were transferred
to other federal land management agencies, to Alaska, and to Native
Alaskans. The number of acres managed by the Forest Service, Fish
and Wildlife Service, and National Park Service increased, while the
number of acres managed by the Bureau of Land Management decreased.
In total, the acreage managed by the four agencies as of September
30, 1994, represented about 26.6 percent of the nation's acreage.
The acreage managed by these agencies increased over the 30-year
period in 46 states and decreased in 4 states. Figure 2 shows the
percentage change in the acreage managed by the four agencies, by
state, between mid-1964 and September 30, 1994. Appendix I provides
data on the acreage managed by each of the four agencies, by state,
as of mid-1964 and September 30, 1994.
Figure 2: Change in the
Percentage of Federal Acres
Managed by the Four Federal
Agencies Between June 1964 and
September 1994
(See figure in printed
edition.)
Over the period, the number of acres managed by the four agencies
primarily for conservation increased from about 66 million acres to
about 272 million acres. This total includes all of the lands
managed by the Fish and Wildlife Service and National Park Service,
as well as portions of the lands managed by the Forest Service and
Bureau of Land Management. Table 1 provides information on the
number of acres and the percentage of federal acreage managed for
conservation as of June 30, 1964, and September 30, 1994. Tables I.3
through I.5 in appendix I provide more detailed information on the
federal acreage managed for conservation.
Table 1
Number and Percentage of Acres Managed
for Conservation by the Four Federal
Agencies, Fiscal Years 1964 and 1994
Bureau of Fish and
Forest Land Wildlife National
Service Management Service Park Service Total
------------------- ------------ ------------ ------------ ------------ ============
1964
-----------------------------------------------------------------------------------------
Total acreage 186,274,576 464,346,607 22,650,737 27,493,836 700,765,756
managed
Conservation 16,018,661 628 22,650,737 27,493,836 66,163,862
acreage
Percent managed
for conservation 8.60 \a 100.00 100.00 9.44
1994
-----------------------------------------------------------------------------------------
Total acreage 191,573,857 267,102,376 87,487,290 76,588,003 622,751,526
managed
Conservation 49,893,688 58,165,321 87,487,290 76,588,003 272,134,302
acreage
Percent managed for
conservation 26.04 21.78 100.00 100.00 43.70
-----------------------------------------------------------------------------------------
\a Less than 0.005 percent.
Source: GAO's analysis of data provided by the departments of
Agriculture and the Interior.
ACREAGE INCLUDED IN FEDERAL
RIGHTS-OF-USE, HELD IN TRUST
FOR INDIANS, OWNED BY STATES,
AND INVOLVED IN NONPROFITS'
LAND TRANSACTIONS
------------------------------------------------------------ Letter :4
As of September 30, 1994, the four federal agencies had obtained
rights-of-use to over 3 million acres of nonfederal land through
leases, agreements, permits, and easements. Generally, these
rights-of-use are obtained from owners of nonfederal lands to support
the management of adjacent federal lands. For example, easements can
be obtained to provide members of the public with access to federal
lands. Table 2 summarizes the acreage associated with the various
rights-of-use obtained by these agencies. Tables I.9 through I.12 in
appendix I provide details on the number of acres to which each
agency has obtained rights-of-use in each state.
Table 2
Nonfederal Acres for Which the Four
Federal Agencies Had Rights-of-Use as of
September 30, 1994
Agreemen Easement
Acreage Leases ts Permits s Total
-------------------- -------- -------- -------- -------- --------
Number of acres
171,244 642,200 66,965 2,120,29 3,000,70
1 0
Percentage of acres
5.7 21.4 2.2 70.7 100.0
----------------------------------------------------------------------
Source: GAO's analysis of data provided by the departments of
Agriculture and the Interior.
In addition, other lands are held in trust for Indians, are owned by
states, and have been acquired and subsequently transferred to others
by nonprofit organizations, as the following data show:
Lands held in trust by the federal government for individual
Indians and Indian tribes totaled about 52.3 million acres in
1995. These lands were located in 33 states. Table II.1 in
appendix II provides data on the number of acres held in trust
in each of the 33 states where Indian lands are located.
Thirteen western states collectively owned about 141.9 million
acres as of September 30, 1994. Table III.1 in appendix III
shows the acreage owned by each of the 13 states.
Collectively, from July 1964 through September 1994, three nonprofit
organizations--the Nature Conservancy, The Conservation Fund, and The
Trust for Public Land--transferred about 3.2 million acres to others
from their holdings through sales, donations, and exchanges. Table 3
shows the acreage involved in each organization's land transactions.
More detailed information on the land transactions of these
organizations is contained in appendix IV.
Table 3
Acreage Involved in the Land
Transactions of Three Major Nonprofit
Organizations Between July 1, 1964, and
September 30, 1994
Acres
Nonprofit organization Acres on hand Acres acquired transferred Acres on hand
------------------------- -------------- -------------- -------------- --------------
The Nature Conservancy 69,424 3,051,730 2,495,366 625,788
The Conservation Fund 0\a 159,804\a 85,282 74,522
The Trust for Public Land 0\b 606,883\b 585,205 21,678
-----------------------------------------------------------------------------------------
\a The Conservation Fund was incorporated on March 8, 1985; it had no
acres on hand at that time.
\b The Trust for Public Land was incorporated on May 5, 1972; it had
no acres on hand at that time.
AGENCIES' COMMENTS AND OUR
EVALUATION
------------------------------------------------------------ Letter :5
The Department of the Interior's Bureau of Land Management, Fish and
Wildlife Service, National Park Service, and Bureau of Indian Affairs
and the U.S. Department of Agriculture's Forest Service provided
oral comments on a draft of this report. Generally, the agencies
agreed that the information provided in the report was accurate. On
the basis of their comments, we incorporated technical corrections
and clarifying information into this report where appropriate.
Fish and Wildlife Service officials told us that the vast majority of
the increase in that agency's acreage from 1964 to 1994 resulted from
additions to the national wildlife refuge system in Alaska. These
lands were transferred from the Bureau of Land Management upon
enactment of the Alaska National Interest Lands Conservation Act. We
refer in appendix I to two major land transfers from the Bureau of
Land Management to the Fish and Wildlife Service that expanded the
national wildlife refuge system in Alaska.
The Chief of the National Park Service's Land Resources Division
commented that the Service does not increase the acreage of the
National Park System; that is done by the Congress or by presidential
proclamation. We have included this information in appendix I.
---------------------------------------------------------- Letter :5.1
We performed our work from February 1995 through February 1996 in
accordance with generally accepted government auditing standards. We
did not independently verify the data provided by the various
agencies, states, and organizations. A complete discussion of our
objectives, scope, and methodology is contained in appendix V.
As requested, unless you publicly announce its contents earlier, we
plan no further distribution of this report until 30 days after the
date of this letter. At that time, we will make copies available to
interested congressional committees and Members of Congress; the
Secretaries of Agriculture and the Interior; Interior's Assistant
Secretary, Indian Affairs; the Chief of the Forest Service; the
Directors of the Bureau of Land Management, Fish and Wildlife
Service, and National Park Service; the Director, Office of
Management and Budget; and other interested parties. We will also
provide copies to others upon request.
Please call me at (202) 512-3841 if you or your staff have any
questions about this report. Major contributors to this report are
listed in appendix VI.
Victor S. Rezendes
Director, Energy, Resources,
and Science Issues
CHANGES IN ACREAGE AND USE OF
LANDS MANAGED BY FOUR FEDERAL
AGENCIES
=========================================================== Appendix I
This appendix provides information on changes in federal land
ownership and on the percentage of each state's acreage managed by
the four major federal land management agencies. In addition, it
provides information on the federal acreage managed for conservation,
acreage acquired by the four agencies between June 30, 1964, and
September 30, 1994, and acreage the agencies plan to acquire in
future years. It also provides information on the federal acreage
where hunting and other activities are not allowed, nonfederal
acreage for which the agencies have obtained rights-of-use, and
nonfederal acreage affected by selected environmental regulations.
CHANGES IN FEDERAL LAND
OWNERSHIP
--------------------------------------------------------- Appendix I:1
The acreage managed by the four federal land management agencies
decreased by 78 million acres during the 30-year period. Table I.1
shows the changes in the acreage managed by the four federal
agencies.
Table I.1
Changes in the Federal Acreage Managed
by the Four Federal Agencies, by State,
Fiscal Years 1964 and 1994
Increase
Increase (decrease)\ Increase Increase Total change
State 1964 1994 (decrease) 1964 1994 a 1964 1994 (decrease) 1964 1994 (decrease) in acreage
---------------- ---------- ---------- ---------- ---------- ---------- ----------- ---------- ------------ ---------- ---------- ------------ ----------- ------------
Alabama 631,542 662,755 31,213 1,971 110,963 108,992 9,047 16,392 7,345 9,169 11,501 2,332 149,882
Alaska 20,741,964 22,053,445 1,311,481 288,541,18 88,296,012 (200,245,17 18,634,685 76,321,982 57,687,297 7,797,255 52,203,556 44,406,301 (96,840,097)
8 6)
Arizona 11,410,808 11,250,006 (160,802) 13,034,217 14,257,940 1,223,723 6,977 1,673,906 1,666,929 2,474,249 2,692,176 217,927 2,947,777
Arkansas 2,423,425 2,551,017 127,592 2,074 291,166 289,092 123,899 300,899 177,000 7,915 102,983 95,068 688,752
California 19,970,522 20,625,419 654,897 15,616,779 17,301,768 1,684,989 58,188 242,034 183,846 4,496,680 4,844,421 347,741 2,871,473
Colorado 14,330,694 14,495,948 165,254 8,311,968 8,303,010 (8,958) 19,937 63,910 43,973 566,654 592,247 25,593 225,862
Connecticut 0 24 24 0 0 0 0 342 342 972 6,393 5,421 5,787
Delaware 0 0 0 0 0 0 15,193 23,968 8,775 0 0 0 8,775
Florida 1,075,089 1,136,990 61,901 1,423 25,277 23,854 106,955 241,905 134,950 1,535,610 2,441,712 906,102 1,126,807
Georgia 786,784 864,063 77,279 0 0 0 377,787 471,750 93,963 35,038 57,593 22,555 193,797
Hawaii 0 1 1 0 0 0 256,183 288,008 31,825 239,368 256,453 17,085 48,911
Idaho 20,345,861 20,447,140 101,279 12,310,977 11,845,472 (465,505) 17,969 47,061 29,092 58,444 99,915 41,471 (293,663)
Illinois 211,554 272,492 60,938 0 227 227 50,593 69,770 19,177 91 142 51 80,393
Indiana 125,890 193,036 67,146 0 0 0 111 8,030 7,919 3,283 13,110 9,827 84,892
Iowa 360 0 (360) 0 378 378 26,028 39,570 13,542 1,374 1,663 289 13,849
Kansas 107,114 108,175 1,061 1,297 9 (1,288) 15,073 28,774 13,701 39 468 429 13,903
Kentucky 460,693 684,454 223,761 0 0 0 61,438 2,154 (59,284) 62,909 94,097 31,188 195,665
Louisiana 591,637 603,288 11,651 7,288 309,611 302,323 229,217 443,570 214,353 2,396 12,365 9,969 538,296
Maine 50,023 53,040 3,017 0 0 0 22,701 44,772 22,071 41,932 71,404 29,472 54,560
Maryland 0 0 0 0 0 0 19,425 40,162 20,737 41,146 58,831 17,685 38,422
Massachusetts 1,651 0 (1,651) 0 0 0 8,117 12,225 4,108 35,537 53,355 17,818 20,275
Michigan 2,579,834 2,853,950 274,116 5,946 74,854 68,908 102,045 113,003 10,958 597,901 689,684 91,783 445,765
Minnesota 2,770,352 2,826,931 56,579 40,732 151,255 110,523 212,544 426,237 213,693 95,463 233,417 137,954 518,749
Mississippi 1,134,006 1,155,613 21,607 2,227 57,211 54,984 56,980 194,904 137,924 24,638 102,653 78,015 292,530
Missouri 1,372,081 1,490,087 118,006 323 2,321 1,998 39,392 47,356 7,964 12,321 66,125 53,804 181,772
Montana 16,637,813 16,868,073 230,260 8,262,282 8,075,850 (186,432) 114,287 607,513 493,226 1,064,411 1,221,819 157,408 694,462
Nebraska 339,716 352,133 12,417 6,058 7,493 1,435 138,813 162,963 24,150 2,373 5,556 3,183 41,185
Nevada 5,058,500 5,813,980 755,480 47,194,741 47,959,301 764,560 222,612 2,294,898 2,072,286 647,201 777,902 130,701 3,723,027
New Hampshire 678,104 723,296 45,192 0 0 0 40 3,042 3,002 1,786 9,657 7,871 56,065
New Jersey 0 0 0 0 0 0 17,046 55,769 38,723 15,006 48,453 33,447 72,170
New Mexico 9,086,505 9,326,582 240,077 13,826,454 12,890,539 (935,915) 85,600 326,581 240,981 251,607 384,025 132,418 (322,439)
New York 13,747 13,750 3 0 0 0 12,690 23,602 10,912 20,087 49,311 29,224 40,139
North Carolina 1,125,196 1,240,781 115,585 0 0 0 96,549 401,238 304,689 347,317 369,053 21,736 442,010
North Dakota 1,104,850 1,105,779 929 77,070 61,377 (15,693) 225,457 459,871 234,414 70,450 72,351 1,901 221,551
Ohio 110,852 220,020 109,168 0 0 0 2,669 7,772 5,103 8,560 26,579 18,019 132,290
Oklahoma 271,403 301,757 30,354 29,124 2,327 (26,797) 79,654 99,011 19,357 7,901 9,880 1,979 24,893
Oregon 15,465,016 15,661,441 196,425 15,617,181 15,726,434 109,253 451,015 530,116 79,101 166,760 195,371 28,611 413,390
Pennsylvania 471,620 513,229 41,609 0 0 0 4,258 9,960 5,702 24,064 65,616 41,552 88,863
Rhode Island 0 0 0 0 0 0 26 1,494 1,468 0 5 5 1,473
South Carolina 587,164 611,269 24,105 0 0 0 136,571 109,724 (26,847) 4,442 26,598 22,156 19,414
South Dakota 1,988,290 2,011,887 23,597 280,473 279,085 (1,388) 40,644 192,032 151,388 144,540 154,345 9,805 183,402
Tennessee 598,837 631,713 32,876 0 0 0 1,958 45,004 43,046 258,463 346,744 88,281 164,203
Texas 775,296 754,979 (20,317) 0 0 0 117,416 384,833 267,417 853,680 1,172,471 318,791 565,891
Utah 7,946,494 8,109,316 162,822 23,472,577 22,167,464 (1,305,113) 97,303 100,953 3,650 1,509,075 2,090,120 581,045 (557,596)
Vermont 232,469 354,256 121,787 0 0 0 4,252 6,427 2,175 2,517 9,770 7,253 131,215
Virginia 1,453,853 1,650,526 196,673 0 0 0 16,685 117,642 100,957 289,173 322,160 32,987 330,617
Washington 9,688,321 9,171,108 (517,213) 259,170 352,332 93,162 107,716 136,050 28,334 1,238,676 1,943,567 704,891 309,174
West Virginia 905,647 1,032,135 126,488 0 0 0 215 2,100 1,885 8,087 51,166 43,079 171,452
Wisconsin 1,469,215 1,519,364 50,149 181 160,167 159,986 166,650 188,405 21,755 73,992 135,744 61,752 293,642
Wyoming 9,143,784 9,258,609 114,825 17,442,886 18,392,533 949,647 40,127 57,606 17,479 2,343,284 2,393,476 50,192 1,132,143
====================================================================================================================================================================================
Total 186,274,57 191,573,85 5,299,281 464,346,60 267,102,37 (197,244,23 22,650,737 87,487,290 64,836,553 27,493,836 76,588,003 49,094,167 (78,014,230)
6 7 7 6 1)
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Note:The information shown on the acreage managed by the four federal
land management agencies is as of the following dates: for 1964, as
of June 30, 1964; for 1994, as of September 30, 1994.
\a According to Bureau of Land Management officials, the Bureau's 1.1
million acre increase from 1964 to 1994 for 11 eastern states
(Alabama, Arkansas, Florida, Illinois, Iowa, Louisiana, Michigan,
Minnesota, Mississippi, Missouri, and Wisconsin) did not result from
land acquisitions but reflected the addition in 1986 of withdrawn
public lands that had not been previously inventoried and accounted
for by the Bureau.
Source: GAO's analysis of data provided by the departments of
Agriculture and the Interior.
As table I.1 shows, during the 30-year period, three of the
agencies--the Forest Service, Fish and Wildlife Service, and National
Park Service--increased the number of federal acres that they
managed: the Forest Service by over 5 million acres, the Fish and
Wildlife Service by about 65 million acres, and the National Park
Service by about 49 million acres. According to Fish and Wildlife
Service and Park Service officials, these increases occurred
primarily as the result of congressional authorization or executive
order. The Bureau of Land Management decreased its holdings by 197
million acres during the period, primarily because a significant
portion of the over 113 million acres transferred to the state of
Alaska and to Native Alaskans was under its management. In addition,
two major transfers of land to the Fish and Wildlife Service--12
million acres in 1979 and about 37 million acres in 1980--expanded
the national wildlife refuge system. In 1979, the Bureau of Land
Management also transferred about 41 million acres of land to the
National Park Service to expand existing, or create new, national
parks, monuments, and preserves.
During the 30-year period, the number of acres managed by the four
federal agencies increased in 46 states and decreased in 4 states.
As table I.1 shows, for five states--Arizona, California, Florida,
Nevada, and Wyoming--the amount of federally managed land increased
by at least 1 million acres during the 30-year period. The amount of
federally managed land decreased during this period in Alaska, Idaho,
New Mexico, and Utah.
PERCENTAGE OF EACH STATE'S
ACREAGE MANAGED BY THE FOUR
FEDERAL AGENCIES
--------------------------------------------------------- Appendix I:2
As of September 30, 1994, the four federal agencies managed about
622.8 million acres, or 26.6 percent of the 2.3 billion-acre surface
area of the United States. Table I.2 shows the percentage and amount
of each state's acreage managed by the four federal agencies.
Table I.2
Percentage of Each State's Acreage
Managed by the Four Federal Agencies as
of September 30, 1994
Total
federal
Bureau The four acreage
Total of Land Fish and National federal managed by
acreage of Forest Manageme Wildlife Park agencies the four
State state\a Service nt Service Service \b agencies
------------- ---------- -------- -------- -------- -------- -------- ------------
Alabama 33,431,680 1.98 0.33 0.05 0.03 2.40 801,611
Alaska 393,747,20 5.60 22.42 19.38 13.26 60.67 238,874,995
0
Arizona 72,963,840 15.42 19.54 2.29 3.69 40.94 29,874,028
Arkansas 34,036,480 7.49 0.86 0.88 0.30 9.54 3,246,065
California 101,676,16 20.29 17.02 0.24 4.76 42.30 43,013,642
0
Colorado 66,624,000 21.76 12.46 0.10 0.89 35.21 23,455,115
Connecticut 3,548,160 0\c 0 0.01 0.18 0.19 6,759
Delaware 1,534,080 0 0 1.56 0 1.56 23,968
Florida 38,392,320 2.96 0.07 0.63 6.36 10.02 3,845,884
Georgia 37,745,280 2.29 0 1.25 0.15 3.69 1,393,406
Hawaii 4,133,760 0\c 0 6.97 6.20 13.17 544,462
Idaho 53,487,360 38.23 22.15 0.09 0.19 60.65 32,439,588
Illinois 36,059,520 0.76 0\c 0.19 0\c 0.95 342,631
\d
Indiana 23,158,400 0.83 0 0.03 0.06 0.92 214,176
\d
Iowa 36,016,640 0 0\c 0.11 0\c 0.12 41,611
Kansas 52,660,480 0.21 0\c 0.05 0\c 0.26 137,426
Kentucky 25,863,040 2.65 0 0.01 0.36 3.02 780,705
Louisiana 31,776,000 1.90 0.97 1.40 0.04 4.31 1,368,834
Maine 21,594,240 0.25 0 0.21 0.33 0.78 169,216
Maryland 7,870,080 0 0 0.51 0.75 1.26 98,993
Massachusetts 5,914,240 0 0 0.21 0.90 1.11 65,580
Michigan 37,448,320 7.62 0.20 0.30 1.84 9.96 3,731,491
\d
Minnesota 54,014,080 5.23 0.28 0.79 0.43 6.73 3,637,840
\d
Mississippi 30,903,040 3.74 0.19 0.63 0.33 4.89 1,510,381
Missouri 44,613,760 3.34 0.01 0.11 0.15 3.60 1,605,889
Montana 94,109,440 17.92 8.58 0.65 1.30 28.45 26,773,255
Nebraska 49,522,560 0.71 0.02 0.33 0.01 1.07 528,145
Nevada 70,762,880 8.22 67.77 3.24 1.10 80.33 56,846,081
New Hampshire 5,941,120 12.17 0 0.05 0.16 12.39 735,995
New Jersey 5,257,600 0 0 1.06 0.92 1.98 104,222
New Mexico 77,822,720 11.98 16.56 0.42 0.49 29.46 22,927,727
New York 32,056,320 0.04 0 0.07 0.15 0.27 86,663
\d
North 33,710,080 3.68 0 1.19 1.09 5.97 2,011,072
Carolina
North Dakota 45,250,560 2.44 0.14 1.02 0.16 3.76 1,699,378
Ohio 26,450,560 0.83 0 0.03 0.10 0.96 254,371
\d
Oklahoma 44,737,920 0.67 0.01 0.22 0.02 0.92 412,975
Oregon 62,139,520 25.20 25.31 0.85 0.31 51.68 32,113,362
Pennsylvania 28,806,400 1.78 0 0.03 0.23 2.04 588,805
\d
Rhode Island 787,840 0 0 0.19 0\c 0.19 1,499
South 19,960,960 3.06 0 0.55 0.13 3.75 747,591
Carolina
South Dakota 49,357,440 4.08 0.57 0.39 0.31 5.34 2,637,349
Tennessee 26,972,800 2.34 0 0.17 1.29 3.79 1,023,461
Texas 171,057,28 0.44 0 0.22 0.69 1.35 2,312,283
0
Utah 54,338,560 14.92 40.80 0.19 3.85 59.75 32,467,853
Vermont 6,153,600 5.76 0 0.10 0.16 6.02 370,453
Virginia 27,088,640 6.09 0 0.43 1.19 7.72 2,090,328
Washington 45,207,680 20.29 0.78 0.30 4.30 25.67 11,603,057
West Virginia 15,508,480 6.66 0 0.01 0.33 7.00 1,085,401
Wisconsin 35,932,800 4.23 0.45 0.52 0.38 5.58 2,003,680
\d
Wyoming 62,604,160 14.79 29.38 0.09 3.82 48.08 30,102,224
=========================================================================================
Total 2,340,750, 8.18 11.41 3.74 3.27 26.60 622,751,526
080
-----------------------------------------------------------------------------------------
\a This information, provided by the Bureau of Census, Department of
Commerce, reflects data from the 1990 Census.
\b Percentages may not add because of rounding.
\c Although the agency managed land in this state, the amount managed
is less than 0.005 percent of the state's acreage.
\d The total acreage shown for this state does not include the Great
Lakes water area.
Source: GAO's analysis of data provided by the departments of
Agriculture and the Interior.
Figure I.1 shows the percentage of the acreage within each state
managed by the four agencies.
Figure I.1: Percentage of Each
State's Acreage Managed by the
Four Federal Agencies,
September 30, 1994
(See figure in printed
edition.)
As table I.2 and figure I.1 show, the percentage of each state's
acreage managed by the four federal agencies varies widely. For
example, the agencies manage less than 5 percent of the land in 26
states but over 50 percent in 5 states. Over 80 percent of Nevada's
acreage is managed by the four agencies.
ACREAGE MANAGED FOR
CONSERVATION
--------------------------------------------------------- Appendix I:3
Of the 622.8 million acres managed by the four agencies as of
September 30, 1994, over 272 million acres were managed primarily for
conservation. Lands managed for conservation include, among other
things, national parks, national wildlife refuges, wilderness and
wilderness study areas, wild and scenic rivers, and areas of critical
environmental concern. Table I.3 shows the number of acres and the
percentage of land managed by the four agencies for conservation, by
state, as of September 30, 1994.
Table I.3
Number and Percentage of Acres Managed
for Conservation by the Four Federal
Agencies, by State, as of September 30,
1994
Percentage
Acreage of acreage
Acreage managed for managed for
State managed conservation conservation
---------------------------- ------------ ------------ ------------
Alabama 801,611 69,784 8.71
Alaska 238,874,995 150,786,546 63.12
Arizona 29,874,028 8,899,060 29.79
Arkansas 3,246,065 678,515 20.90
California 43,013,642 33,361,904 77.56
Colorado 23,455,115 5,792,946 24.70
Connecticut 6,759 6,735 99.64
Delaware 23,968 23,968 100.00
Florida 3,845,884 2,855,276 74.24
Georgia 1,393,406 701,655 50.36
Hawaii 544,462 544,461 99.99
Idaho 32,439,588 9,674,341 29.82
Illinois 342,631 100,845 29.43
Indiana 214,176 34,163 15.95
Iowa 41,611 41,233 99.09
Kansas 137,426 29,242 21.28
Kentucky 780,705 138,885 17.79
Louisiana 1,368,834 548,495 40.07
Maine 169,216 128,176 75.75
Maryland 98,993 98,993 100.00
Massachusetts 65,580 65,580 100.00
Michigan 3,731,491 1,043,729 27.97
Minnesota 3,637,840 1,473,570 40.51
Mississippi 1,510,381 310,061 20.53
Missouri 1,605,889 182,946 11.39
Montana 26,773,255 7,431,305 27.76
Nebraska 528,145 183,613 34.77
Nevada 56,846,081 9,847,651 17.32
New Hampshire 735,995 117,911 16.02
New Jersey 104,222 104,222 100.00
New Mexico 22,927,727 4,106,669 17.91
New York 86,663 72,913 84.13
North Carolina 2,011,072 1,007,677 50.11
North Dakota 1,699,378 532,974 31.36
Ohio 254,371 34,428 13.53
Oklahoma 412,975 149,523 36.21
Oregon 32,113,362 7,101,101 22.11
Pennsylvania 588,805 114,377 19.43
Rhode Island 1,499 1,499 100.00
South Carolina 747,591 212,409 28.41
South Dakota 2,637,349 443,525 16.82
Tennessee 1,023,461 468,909 45.82
Texas 2,312,283 1,596,157 69.03
Utah 32,467,853 7,403,484 22.80
Vermont 370,453 112,308 30.32
Virginia 2,090,328 676,997 32.39
Washington 11,603,057 4,793,971 41.32
West Virginia 1,085,401 192,041 17.69
Wisconsin 2,003,680 369,804 18.46
Wyoming 30,102,224 7,467,725 24.81
======================================================================
Total 622,751,526 272,134,302 43.70
----------------------------------------------------------------------
Source: GAO's analysis of data from the departments of Agriculture
and the Interior.
The number of acres managed for conservation shown in table I.3
includes all of the lands managed by the Fish and Wildlife Service
and National Park Service as well as portions of the lands managed by
the Forest Service and Bureau of Land Management. Tables I.4 and I.5
show the category and number of acres managed by the Forest Service
and Bureau of Land Management, respectively, for conservation, as of
September 30, 1994.
Table I.4
Forest Service Acreage Managed for
Conservation as of September 30, 1994
Conservation category Acres managed
------------------------------------------------------ --------------
Wilderness 34,587,437
Wilderness study area 6,638,310
Wild and scenic river 618,283
Research natural area 299,568
National monument 3,404,244
National primitive area 173,762
National recreation area 2,675,274
National game refuge 1,218,953
National scenic-research area 6,630
Other\a 271,227
======================================================================
Total 49,893,688
----------------------------------------------------------------------
\a "Other" includes archeological, botanical, geological, and
national historic areas.
Source: Forest Service.
Table I.5
Bureau of Land Management Acreage
Managed for Conservation as of September
30, 1994
Conservation category Acres managed
------------------------------------------------------ --------------
Wilderness 1,653,529
Wilderness study area 26,554,685
Wild, scenic, and recreation river 829,448
Area of critical environmental concern 9,960,843
Research natural area 326,449
National conservation area 14,323,431
National natural or historic landmark 599,042
National recreation area 1,000,000
National scenic-research area 1,365,280
Other\a 1,552,614
======================================================================
Total\b 58,165,321
----------------------------------------------------------------------
\a "Other" includes national scenic and historic trails, national
recreation trails, and national outstanding natural areas.
\b Bureau officials told us that some acres may be counted in more
than one conservation category, but they could not readily determine
the extent of the double counting.
Source: Bureau of Land Management.
LANDS ACQUIRED BY THE FOUR
FEDERAL AGENCIES
--------------------------------------------------------- Appendix I:4
Table I.6 shows, for the four agencies, the various means they used
for acquiring lands\1 from nonfederal parties and the corresponding
number of acres they acquired from June 30, 1964, through September
30, 1994.
Table I.6
Means by Which the Four Federal Agencies
Acquired Acreage From Nonfederal Parties
From 1964 to 1994
Bureau of Fish and
Forest Land Wildlife National
Means used Service Management Service Park Service Total
------------------- ------------ ------------ ------------ ------------ ------------
Purchase 1,479,348 297,080 1,998,247 1,303,292 5,077,967
Gift or donation 522,326 14,646 586,377 631,747 1,755,096
Exchange 2,179,643 724,402 256,576 90,708 3,251,329
Other\a 105,138 35,822 34,976 601,279 777,215
=========================================================================================
Total 4,286,455 1,071,950 2,876,176 2,627,026 10,861,607
-----------------------------------------------------------------------------------------
Note: Totals may not add because of rounding.
\a "Other" includes acreage acquired through condemnation and
takings.
As table I.6 shows, the lands acquired by the four agencies through
purchase accounted for nearly half of all the acres acquired during
the 30-year period.
As of September 30, 1994, the four agencies planned to acquire about
11.8 million acres in future years. Table I.7 shows the acreage, by
state, that the four agencies planned to acquire in subsequent years.
Table I.7
Acquisitions Planned by the Four
Agencies, by State, in Subsequent Years
Bureau of Fish and
Forest Land Wildlife National Park
State Service Management Service Service Total
------ ------------ ------------ ------------ -------------- --------------
Alabam 62,508 0 5,811 0 68,319
a
Alaska 230,160 0 26,500 20 256,680
Arizon 63,739 27,937 30,923 20,964 143,563
a
Arkans 95,277 0 78,207 314 173,798
as
Califo 377,702 847,095 205,066 102,278 1,532,141
rnia
Colora 155,031 69,134 21,890 6,026 252,081
do
Connec 0 0 900 535 1,435
ticut
Delawa 0 0 2,992 0 2,992
re
Florid 27,096 0 45,863 50,107 123,066
a
Georgi 98,201 0 5,499 2,219 105,919
a
Hawaii 0 0 118,470 445 118,915
Idaho 122,663 68,656 0 6,023 197,342
Illino 56,766 0 84,870 75 141,711
is
Indian 45,132 0 20,862 1,046 67,040
a
Iowa 0 0 147,967 0 147,967
Kansas 814 0 0 0 814
Kentuc 141,725 0 0 0 141,725
ky
Louisi 42,134 0 149,948 194 192,276
ana
Maine 4,025 0 17,181 3,989 25,195
Maryla 0 0 5,600 4,734 10,334
nd
Massac 0 0 3,994 1,017 5,011
huset
ts
Michig 204,134 0 65,930 3,855 273,919
an
Minnes 263,987 0 497,221 1,718 762,926
ota
Missis 115,430 0 46,207 694 162,331
sippi
Missou 157,002 0 0 958 157,960
ri
Montan 223,865 49,273 344,515 2,168 619,821
a
Nebras 9,035 0 114,110 14 123,159
ka
Nevada 46,133 1,397 22,606 284 70,420
New 10,176 0 8,180 85 18,441
Hamps
hire
New 0 0 45,245 207 45,452
Jersey
New 104,012 7,598 10,890 5,525 128,025
Mexico
New 0 0 18,259 616 18,875
York
North 192,459 0 37,377 2,678 232,514
Carol
ina
North 0 0 2,197,510 855 2,198,365
Dakota
Ohio 61,415 0 16,000 1,571 78,986
Oklaho 16,318 0 10,118 26 26,462
ma
Oregon 184,712 88,608 106,322 2,805 382,447
Pennsy 22,970 0 396 2,427 25,793
lvania
Rhode 0 0 1,229 0 1,229
Island
South 76,425 0 12,017 0 88,442
Carol
ina
South 35,214 0 1,147,627 1,503 1,184,344
Dakota
Tennes 58,051 0 23,170 10,393 91,614
see
Texas 123,949 0 217,546 28,652 370,147
Utah 109,042 16,890 48,329 5,195 179,456
Vermon 46,124 0 17,215 1,579 64,918
t
Virgin 157,252 0 0 9,760 167,012
ia
Washin 89,662 36,920 126,703 7,701 260,986
gton
West 83,723 0 30,460 23,586 137,769
Virgi
nia
Wiscon 50,361 0 48,688 0 99,049
sin
Wyomin 44,493 49,801 25,395 1,748 121,437
g
================================================================================
Total 4,008,917 1,263,309 6,211,808 316,589 11,800,623
--------------------------------------------------------------------------------
Source: The departments of Agriculture and the Interior.
According to agency officials, the planned acquisitions include land
to be acquired by the agencies as new areas (such as refuges),
additions to existing areas, or privately owned lands (inholdings)
within areas that the agencies manage.
Data provided by the Forest Service and the National Park Service
showed inholdings of approximately 40 million acres and about 4.3
million acres, respectively. According to Forest Service and
National Park Service officials, their agencies do not plan to
acquire all of the inholdings. For example, Forest Service officials
told us that their plans are to acquire about 10 percent of the
inholdings within the National Forest System. The Bureau of Land
Management and Fish and Wildlife Service could not provide us with
information on the total acreage of the inholdings within their areas
in a useable format in the requested time frame. However, like the
Forest Service and National Park Service, Bureau and Fish and
Wildlife Service officials told us that their agencies do not plan to
acquire all of the inholdings.
--------------------
\1 Acquired lands are lands that were obtained by the four agencies
through purchase, condemnation, taking, gift, donation, or exchange.
Exchanges are transactions where the federal government acquires land
for other land, timber, or other products. Acquired lands do not
include transfers of land from other federal agencies.
FEDERAL ACREAGE WHERE HUNTING
AND OTHER ACTIVITIES ARE NOT
ALLOWED
--------------------------------------------------------- Appendix I:5
The four federal agencies did not allow hunting on 57.5 million of
the acres they managed as of September 30, 1994. Included in this
total are over 50.6 million acres managed by the National Park
Service, about 4.6 million acres managed by the Fish and Wildlife
Service, and almost 2 million acres managed by the Forest Service.
Table I.8 shows, by state, the number of acres managed by the Forest
Service, Bureau of Land Management, and National Park Service where
hunting is not allowed. The Fish and Wildlife Service could not
provide the number of acres, by state, where hunting is not allowed.
Table I.8
Acreage Managed by Three Federal
Agencies Where Hunting Is Not Allowed,
by State
Percentage
of acreage
Total managed
Bureau of National acreage where
Forest Land Park managed by hunting is
State Service Management Service Total the agencies not allowed
------------- ---------- ---------- ---------- ---------- ------------ ------------
Alabama 0 0 6,332 6,332 785,219 0.81
Alaska 1,816,587 0 31,972,862 33,789,449 162,553,013 20.79
Arizona 25,750 23,500 1,719,607 1,768,857 28,200,122 6.27
Arkansas 0 0 9,571 9,571 2,945,166 0.32
California 58,000 0 4,467,503 4,525,503 42,771,608 10.58
Colorado 18,820 0 591,202 610,022 23,391,205 2.61
Connecticut 0 0 5,330 5,330 6,417 83.06
Delaware 0 0 0 0 0 0
Florida 22,885 0 1,682,707 1,705,592 3,603,979 47.33
Georgia 0 0 22,065 22,065 921,656 2.39
Hawaii 0 0 235,408 235,408 256,454 91.79
Idaho 1,200 116 94,994 96,310 32,392,527 0.30
Illinois 0 0 12 12 272,861 0
Indiana 0 0 9,851 9,851 206,146 4.78
Iowa 0 0 1,663 1,663 2,041 81.48
Kansas 0 0 429 429 108,652 0.39
Kentucky 0 0 62,852 62,852 778,551 8.07
Louisiana 0 0 0 0 925,264 0
Maine 0 0 63,337 63,337 124,444 50.90
Maryland 0 0 28,649 28,649 58,831 48.70
Massachusetts 0 0 5,481 5,481 53,355 10.27
Michigan 0 0 539,282 539,282 3,618,488 14.90
Minnesota 0 0 133,118 133,118 3,211,603 4.14
Mississippi 0 0 32,415 32,415 1,315,477 2.46
Missouri 0 0 2,061 2,061 1,558,533 0.13
Montana 26,500 0 1,183,433 1,209,933 26,165,742 4.62
Nebraska 0 0 5,371 5,371 365,182 1.47
Nevada 0 28,000 187,993 215,993 54,551,183 0.40
New Hampshire 0 0 9,449 9,449 732,953 1.29
New Jersey 0 0 2,809 2,809 48,453 5.80
New Mexico 14,667 151,272 372,928 538,867 22,601,146 2.38
New York 0 0 10,789 10,789 63,061 17.11
North 0 0 324,017 324,017 1,609,834 20.13
Carolina
North Dakota 0 0 71,383 71,383 1,239,507 5.76
Ohio 0 0 17,504 17,504 246,599 7.10
Oklahoma 0 0 0 0 313,964 0
Oregon 0 13,868 194,476 208,344 31,583,246 0.66
Pennsylvania 0 0 22,026 22,026 578,845 3.81
Rhode Island 0 0 5 5 5 100.00
South 0 0 26,240 26,240 637,867 4.11
Carolina
South Dakota 0 0 141,302 141,302 2,445,317 5.78
Tennessee 0 0 266,779 266,779 978,457 27.27
Texas 1,420 0 854,086 855,506 1,927,450 44.39
Utah 0 0 875,232 875,232 32,366,900 2.70
Vermont 0 0 7,258 7,258 364,026 1.99
Virginia 0 0 304,293 304,293 1,972,686 15.43
Washington 0 0 1,755,830 1,755,830 11,467,007 15.31
West Virginia 0 0 2,748 2,748 1,083,301 0.25
Wisconsin 0 0 0 0 1,815,275 0
Wyoming 0 0 2,337,506 2,337,506 30,044,618 7.78
=========================================================================================
Total 1,985,829 216,756 50,660,188 52,862,773 535,264,236 9.88
-----------------------------------------------------------------------------------------
Note: Acreage totals may not add because of rounding.
Source: GAO's analysis of data provided by the departments of
Agriculture and the Interior.
As part of our work, we also requested the four agencies to provide
data on the number of acres that had various limitations on use, such
as restrictions on oil and gas development, mineral development,
livestock grazing, and timber harvesting. Fish and Wildlife Service
and National Park Service officials told us that these activities are
generally not allowed on the lands these agencies manage. However,
officials from both agencies indicated that some or all of these
activities may be allowed in specific locations if required by
legislative mandates, if rights to conduct these activities existed
before the lands were acquired by the federal agency, or if the
activities are determined to be compatible with the primary purpose
for which the lands are managed.
Forest Service and the Bureau of Land Management officials told us
that restrictions on the use of the lands they manage are identified
in specific land management plans. Such restrictions vary by area
and are continuously changing as land management plans are revised
and updated. Our review of the data provided by these agencies
indicated that as of September 30, 1994,
mineral development was not allowed on about 2.6 million acres
managed by the Forest Service and
oil and gas development was not allowed on 77.3 million acres,
mineral development was not allowed on 90.5 million acres, and
grazing was not allowed on 20.6 million acres of Bureau of Land
Management lands that were not managed for conservation.
Agency officials pointed out that more than one of these activities
may be prohibited on the same lands.
RIGHTS-OF-USE ON NONFEDERAL
LAND
--------------------------------------------------------- Appendix I:6
In addition to managing federal lands, the four federal agencies had
rights-of-use for 3 million acres of nonfederal land as of September
30, 1994. These rights-of-use were obtained through easements,
leases, agreements, and permits. Tables I.9 through I.12 show, for
each of the four agencies, the number of acres included in the
various rights-of-use, by state.
Table I.9
Nonfederal Acres for Which the Forest
Service Had Rights-of-Use as of
September 30, 1994
State\a Easements Leases Total
---------------------------------- ---------- ---------- ----------
Alaska 0 250 250
Arizona 942 2 944
Arkansas 0 1 1
California 5,446 95 5,541
Colorado 0 6,869 6,869
Florida 0 1 1
Georgia 0 4,355 4,355
Idaho 20,559 36 20,595
Illinois 116 0 116
Kentucky 0 18 18
Maine 1,272 3,800 5,072
Michigan 25,708 5 25,713
Minnesota 0 103 103
Missouri 12 2 14
Montana 1,954 4 1,958
Nebraska 0 2 2
Nevada 1,325 0 1,325
New Hampshire 275 10 285
New Jersey 0 590 590
New Mexico 2,153 27 2,180
New York 141 0 141
North Carolina 0 11 11
Ohio 0 570 570
Oregon 1,024 34 1,058
South Dakota 0 8 8
Tennessee 7 1 8
Vermont 2,281 12 2,293
Virginia 186 2 188
Washington 1,351 29 1,380
West Virginia 172 3 175
Wisconsin 21 0 21
Wyoming 0 7 7
======================================================================
Total 64,945 16,847 81,793
----------------------------------------------------------------------
Note: Totals may not add because of rounding.
\a Information is presented only for those states where the Forest
Service has obtained total rights-of-use for one or more acres of
land.
Source: Forest Service.
Table I.10
Nonfederal Acres for Which the Bureau of
Land Management Had Rights-of-Use as of
September 30, 1994
Easement Agreemen
State\a s Leases ts Total
------------------------------ -------- -------- -------- --------
Arizona 274 21 0 295
Colorado 1,110 15 0 1,125
Idaho 4,002 0 0 4,002
Montana 16,763 0 0 16,763
Nevada 286 18 2 306
New Mexico 2,786 0 0 2,786
North Dakota 1,989 0 0 1,989
Oregon 5,702 335 0 6,037
South Dakota 7,698 0 0 7,698
Utah 605 0 0 605
Washington 32 0 0 32
Wyoming 5,042 0 0 5,042
======================================================================
Total 46,289 389 2 46,680
----------------------------------------------------------------------
\a Information is presented only for those states where the Bureau of
Land Management obtained total rights-of-use for one or more acres of
land.
Source: Bureau of Land Management.
Table I.11
Nonfederal Acres for Which the Fish and
Wildlife Service Had Rights-of-Use as of
September 30, 1994
State\a Easements Permits Leases Agreements Total
------------------- ------------ ------------ ------------ ------------ ------------
Alabama 667 0 578 0 1,245
Alaska 0 17 4 5 26
Arizona 1 0 1,575 0 1,576
Arkansas 629 0 233 0 862
California 67,161 206 18,126 551 86,044
Colorado 299 0 2,557 0 2,856
Delaware 857 0 0 0 857
Florida 2,744 0 7,673 537,124 547,541
Georgia 3,583 0 20 490 4,093
Hawaii 735 0 163 61 959
Idaho 50 19 0 13,004 13,073
Illinois 697 0 0 26,754 27,451
Indiana 253 0 0 0 253
Iowa 764 2 0 6,499 7,265
Kansas 6 0 0 0 6
Louisiana 5,277 0 2,523 1,280 9,080
Maine 608 0 0 2 610
Maryland 68 0 0 0 68
Massachusetts 23 0 0 620 643
Michigan 2,673 1,775 0 12 4,460
Minnesota 62,004 155 7,006 24 69,189
Mississippi 5,690 0 900 667 7,257
Missouri 768 0 0 12,075 12,843
Montana 51,305 246 5,843 4,564 61,958
Nebraska 1,039 0 0 0 1,039
Nevada 1,019 63,544 0 0 64,563
New Hampshire 6 0 0 0 6
New Jersey 2,414 0 0 0 2,414
New Mexico 266 0 500 0 766
New York 1,513 0 17 0 1,530
North Carolina 4,190 0 4,057 0 8,247
North Dakota 901,835 0 217 0 902,052
Ohio 7 67 591 0 665
Oklahoma 521 130 59 125 835
Oregon 318 0 878 34,277 35,473
South Carolina 683 0 72,974 682 74,339
South Dakota 618,814 130 0 0 618,944
Tennessee 2,036 0 13,235 0 15,271
Texas 35,514 1 5,214 2,320 43,049
Utah 399 0 3,846 0 4,245
Vermont 71 0 0 0 71
Virginia 734 0 0 25 759
Washington 3,670 672 3,726 1,036 9,104
Wisconsin 1,330 0 233 0 1,563
Wyoming 3,146 0 0 0 3,146
Total 1,786,388 66,965 152,749 642,198 2,648,300
-----------------------------------------------------------------------------------------
Note: Acreage totals may not add because of rounding.
\a Information is presented only for those states where Fish and
Wildlife Service has obtained total rights-of-use for one or more
acres of land.
Source: Fish and Wildlife Service.
Table I.12
Nonfederal Acres to Which the National
Park Service Had Rights-of-Use as of
September 30, 1994
State\a Easements Leases Total
---------------------------- ------------ ------------ ------------
Alabama 202 0 202
Alaska 12,439 10 12,449
Arizona 162 0 162
Arkansas 3,201 0 3,201
California 162 1 163
Colorado 5,511 0 5,511
Connecticut 711 0 711
Florida 1,330 0 1,330
Georgia 24 1 25
Hawaii 1 1,247 1,248
Idaho 445 0 445
Indiana 485 0 485
Kansas 269 0 269
Kentucky 137 0 137
Maine 5,990 0 5,990
Maryland 5,731 0 5,731
Massachusetts 699 1 700
Michigan 1,026 0 1,026
Minnesota 3,064 0 3,064
Mississippi 5,262 0 5,262
Missouri 9,547 0 9,547
Montana 1,114 0 1,114
Nebraska 491 0 491
New Hampshire 756 0 756
New Jersey 35 0 35
New Mexico 5 0 5
New York 3,802 0 3,802
North Carolina 12,218 0 12,218
North Dakota 258 0 258
Ohio 1,305 0 1,305
Oklahoma 9 0 9
Oregon 379 0 379
Pennsylvania 1,886 0 1,886
South Carolina 31 0 31
South Dakota 122,327 0 122,327
Tennessee 1,521 0 1,521
Texas 76 0 76
Utah 1,279 0 1,279
Vermont 1,080 0 1,080
Virginia 4,492 0 4,492
Washington 1,420 0 1,420
Wisconsin 10,274 0 10,274
West Virginia 390 0 390
Wyoming 1,124 0 1,124
======================================================================
Total 222,669 1,259 223,928
----------------------------------------------------------------------
Note: Totals may not add because of rounding.
\a Information is presented only for those states where the National
Park Service has obtained total rights-of-use for one or more acres
of land.
Source: National Park Service.
NONFEDERAL ACREAGE AFFECTED BY
SELECTED ENVIRONMENTAL
REGULATIONS
--------------------------------------------------------- Appendix I:7
Officials from the U.S. Army Corps of Engineers, Environmental
Protection Agency, and Fish and Wildlife Service, the primary
agencies responsible for implementing regulations under the Clean
Water Act and the Endangered Species Act, told us that their
respective agencies did not maintain information on the number of
privately owned acres whose uses may be limited by the regulations
implementing these acts. In general, however, privately owned land
containing a wetland or habitat considered essential to the survival
of a protected species could be subject, under these regulations, to
prohibitions against certain actions that would modify the wetland or
habitat. For example, designating critical habitat for a protected
species under the Endangered Species Act would identify lands
containing habitat that may require special management or protection.
On the basis of the regulations establishing critical habitat, about
1.1 million acres of privately owned land had been included in the
critical habitat designations for 31 species. Nearly all of this
acreage had been designated as critical habitat for the desert
tortoise.
ACREAGE HELD IN TRUST FOR
INDIVIDUAL INDIANS AND INDIAN
TRIBES
========================================================== Appendix II
The federal government holds 52.3 million acres in trust for
individual Indians and Indian tribes in 33 states. Table II.1 shows
the number of acres held in each state for this purpose.
Table II.1
Acreage Held in Trust for Individual
Indians and Indian Tribes, by State, in
1995
State Number of acres
-------------------------------------------------- ------------------
Alabama 1,683
Alaska 215,837
Arizona 18,843,819
California 548,738
Colorado 1,076,890
Connecticut 2,086
Florida 164,546
Idaho 836,758
Iowa 3,408
Kansas 30,327
Louisiana 2,279
Maine 219,053
Massachusetts 493
Michigan 21,248
Minnesota 763,444
Mississippi 20,528
Montana 5,286,101
Nebraska 65,890
Nevada 934,956
New Mexico 7,650,579
New York 52,918
North Carolina 56,736
North Dakota 854,332
Oklahoma 467,534
Oregon 785,740
Rhode Island 2,532
South Carolina 630
South Dakota 5,015,326
Texas 125
Utah 3,720,076
Washington 2,616,094
Wisconsin 214,193
Wyoming 1,812,611
======================================================================
Total 52,287,510
----------------------------------------------------------------------
Note: This acreage includes federal trust, tribal/restricted fee,
and/or government lands. Federal trust lands are those whose title
is held by the United States in trust for individual Indians or
Indian tribes. Tribal/restricted fee lands are those whose title is
held by individual Indians or tribes. Government lands consist of a
small amount of acreage owned by the United States for special uses
such as federal schools and hospitals for Native Americans and for
administrative offices.
The amount of acreage was provided as of November 7, 1995, for
Alabama, Connecticut, Florida, Louisiana, Maine, Massachusetts,
Mississippi, New York, North Carolina, Rhode Island, and South
Carolina. The amount of acreage for the remaining states was as of
September 15, 1995.
Source: Bureau of Indian Affairs.
LANDS OWNED BY 13 WESTERN STATES
========================================================= Appendix III
Table III.1 shows the acreage owned within each state's border by
each of the 13 western states in our review.
Table III.1
Acreage Owned by 13 Western States as of
September 30, 1994
Acreage owned
State by the state\a
-------------------------------------------------- ------------------
Alaska 89,383,753
Arizona 9,617,660
California 2,362,396
Colorado 3,405,638
Idaho 2,958,397
Montana 5,769,677
Nevada 246,065
New Mexico 9,800,156
Oregon 1,876,325
Texas 3,154,943
Utah 5,721,929
Washington 3,764,900
Wyoming 3,873,971
======================================================================
Total 141,935,810
----------------------------------------------------------------------
\a We did not include the submerged acreage reported by the coastal
states in these numbers.
Source: Officials from the respective states.
LANDS ACQUIRED BY THREE NONPROFIT
ORGANIZATIONS
========================================================== Appendix IV
Generally, the three nonprofit organizations in our review acquire
parcels of land for conservation and then sell, donate, or exchange
the parcels to entities such as federal, state, and local
governments. Tables IV.1 to IV.3 show the amount of acreage
acquired, transferred, and owned by these organizations--the Nature
Conservancy, The Conservation Fund, and The Trust for Public Land.
Table IV.1
Acreage Transactions for the Nature
Conservancy, by State, From July 1,
1964, Through September 30,1994
Acres
Acres acquired
owned between Acres
as of 7/1/64 Federal State Local owned as
7/1/ and 9/ governme governme government Conservation Other of 9/
State 64 30/94 nt nts s entities s 30/94
-------- ------ -------- -------- -------- ---------- ------------ ----- --------
Alabama 1,433 3,575 1,472 1,599 200 0 0 1,737
Alaska 0 44,611 51 43,574 0 986 0 0
Arizona 0 19,527 6,901 310 80 4,832 0 7,404
Arkansas 0 47,340 20,773 24,938 0 306 0 1,323
Californ 1,419 291,443 159,411 40,929 2,061 10,679 0 79,782
ia
Colorado 0 37,662 6,822 19,705 2,554 1,616 0 6,965
Connecti 563 13,974 274 1,415 164 5,113 0 7,571
cut
Delaware 0 1,779 0 579 0 532 0 668
Florida 0 269,085 80,654 128,468 15,843 15,863 0 28,257
Georgia 72 113,050 38,427 65,283 311 2,292 3,865 2,944
Hawaii 0 21,851 20,233 0 0 236 0 1,382
Idaho 0 31,839 18,218 3,387 0 1,422 0 8,812
Illinois 235 22,909 6,376 8,741 1,296 2,046 0 4,685
Indiana 55 21,167 660 10,913 1,299 1,761 0 6,589
Iowa 42 2,887 248 484 820 7 0 1,370
Kansas 0 21,255 726 3,750 0 480 0 16,299
Kentucky 379 14,731 3,566 6,721 0 315 0 4,508
Louisian 0 53,636 28,962 2,719 89 11,081 0 10,785
a
Maine 404 35,074 8,563 5,183 462 471 0 20,799
Maryland 123 18,393 2,642 7,865 14 388 0 7,607
Massachu 74 4,688 238 2,159 396 827 0 1,142
setts
Michigan 0 47,909 14,282 18,095 3,691 184 0 11,657
Minnesot 160 66,110 9,527 32,638 2,943 4,256 0 16,906
a
Mississi 0 65,198 22,383 41,637 0 110 0 1,068
ppi
Missouri 220 112,733 8,134 97,605 83 411 0 6,720
Montana 0 118,222 14,131 85,285 8 642 240 17,916
Nebraska 58,146 10,939 602 1,461 0 1,919 0 65,103
Nevada 0 23,972 18,538 3,576 51 1,552 0 255
New
Hampshi 400 6,764 851 0 316 833 113 5,051
re
New 0 17,434 4,963 8,817 296 62 0 3,296
Jersey
New 0 475,927 227,854 20,208 0 202,389 25,10 371
Mexico 5
New York 2,522 89,778 504 66,065 3,594 1,631 0 20,506
North 0 160,257 75,582 54,374 458 4,908 0 24,935
Carolina
North 0 6,519 0 1,860 3 899 0 3,757
Dakota
Ohio 744 22,754 1,037 3,927 4,093 3,449 0 10,992
Oklahoma 0 32,120 10,743 11,332 82 82 0 9,881
Oregon 22 60,764 21,131 2,238 243 24 0 37,150
Pennsylv 478 13,927 57 8,088 2,054 486 0 3,720
ania
Rhode 0 3,503 22 2,413 155 441 0 472
Island
South 0 58,416 2,861 39,308 0 5,037 484 10,726
Carolina
South 62 11,264 0 13 0 1,980 0 9,333
Dakota
Tennesse 0 39,298 18,881 18,541 0 1,149 0 727
e
Texas 0 252,158 164,299 9,391 9,338 13,642 0 55,488
Utah 0 31,579 13,606 14,809 0 462 0 2,702
Vermont 0 79,172 27,117 34,498 1,531 6,765 0 9,261
Virginia 1,116 78,672 20,787 12,881 373 835 631 44,281
Washingt 63 13,850 1,520 4,693 1,399 68 0 6,234
on
West 257 17,148 14,106 779 735 209 0 1,576
Virginia
Wisconsi 435 26,611 1,595 10,943 286 1,536 0 12,686
n
Wyoming 0 18,256 5,826 0 0 40 0 12,390
=========================================================================================
Total 69,424 3,051,73 1,106,15 984,197 57,321 317,254 30,43 625,788
0 6 8
-----------------------------------------------------------------------------------------
Source: the Nature Conservancy.
Table IV.2
Acreage Transactions for The
Conservation Fund, by State, From March
8, 1985, Through September 30, 1994
Acres
acquired
between 3/ State Local Conservati Acres owned
8/85 and 9/ Federal government government on as of 9/
State 30/94 government s s entities 30/94
------------ ------------ ------------ ---------- ---------- ---------- -----------
Alabama 2,659 1,330 270 0 0 1,059
Arizona 646 646 0 0 0 0
Arkansas 1 1 0 0 0 0
California 96 0 0 59 0 37
Colorado 4,497 4,497 0 0 0 0
Georgia 550 550 0 0 0 0
Idaho 121,652 63,838 814 0 0 57,000
Kentucky 1,100 1,100 0 0 0 0
Louisiana 4,256 0 256 0 0 4,000
Maine 169 169 0 0 0 0
Maryland 5,185 1,292 2,557 0 0 1,336
Mississippi 5 0 0 0 5 0
New Jersey 389 0 389 0 0 0
New Mexico 166 166 0 0 0 0
North 957 957 0 0 0 0
Carolina
Oregon 9,656 156 0 0 0 9,500
Pennsylvania 7 0 0 0 0 7
Tennessee 873 125 26 0 0 722
Texas 266 0 0 0 0 266
Vermont 5,131 3,861 710 0 0 560
Virginia 928 511 397 0 0 20
West 615 110 50 0 440 15
Virginia
=========================================================================================
Total 159,804 79,309 5,469 59 445 74,522
-----------------------------------------------------------------------------------------
Note: The Conservation Fund was incorporated on March 8, 1985; it
had no acres on hand as of that date.
Source: The Conservation Fund.
Table IV.3
Acreage Transactions for The Trust for
Public Land, by State, From May 5, 1972,
Through September 30, 1994
Acres
acquired Acres
between 5/ State Conservati owned as
5/72 and Federal government Local on of 9/30/
State 9/30/94 government s governments entities Others 94
-------- ---------- ---------- ---------- ------------ ---------- ------ ---------
Alabama 1,058 0 0 1,058 0 0 0
Alaska 435 435 0 0 0 0 0
Arizona 1,809 1,531 0 277 0 1 0
Arkansas 11,536 11,536 0 0 0 0 0
Californ 128,207 80,631 29,765 5,910 4,465 682 6,754
ia
Colorado 49,408 21,642 15,880 3,415 5,192 422 2,857
Connecti 861 2 533 282 0 37 7
cut
Florida 100,399 11,076 25,617 10,585 130 50,968 2,023
\a
Georgia 5,250 5,241 0 0 3 0 6
Hawaii 399 399 0 0 0 0 0
Idaho 3,336 3,217 0 34 0 85 0
Illinois 1,267 1,248 0 19 0 0 0
Kansas 2 2 0 0 0 0 0
Kentucky 1,305 1,305 0 0 0 0 0
Louisian 948 948 0 0 0 0 0
a
Maine 65 0 0 65 0 0 0
Maryland 1,372 234 753 304 13 40 28
Massachu 2,732 58 1,294 786 372 181 41
setts
Michigan 48,892 48,657 0 235 0 0 0
Minnesot 20,226 11,517 1,314 272 300 0 6,823
a
Mississi 79 79 0 0 0 0 0
ppi
Missouri 752 752 0 0 0 0 0
Montana 1,151 1,126 0 0 25 0 0
Nevada 9,689 9,386 0 303 0 0 0
New
Hampshi 1,167 1,167 0 0 0 0 0
re
New 5,272 1,035 2,613 1,569 1 50 4
Jersey
New 3,926 3,484 297 137 8 0 0
Mexico
New York 26,633 433 21,295 3,414 307 452 732
North 3,028 2,996 0 8 24 0 0
Carolina
Ohio 3,482 3,354 44 69 15 0 0
Oklahoma 4,088 4,088 0 0 0 0 0
Oregon 32,798 31,793 243 557 0 176 29
Pennsylv 707 704 0 3 0 0 0
ania
Rhode 145 0 0 142 3 0 0
Island
South 4,203 4,203 0 0 0 0 0
Carolina
Tennesse 12,792 592 12,200 0 0 0 0
e
Texas 13,713 4,910 6,688 1,997 0 0 118
Utah 533 533 0 0 0 0 0
Vermont 384 325 0 0 5 0 54
Virginia 1,728 1,380 348 0 0 0 0
Washingt 27,714 14,086 10,665 1,649 329 166 819
on
West 63,912 62,527 0 2 0 0 1,383
Virginia
Wisconsi 9,480 8,431 200 849 0 0 0
n
=========================================================================================
Total 606,883 357,063 129,749 33,941 11,192 53,260 21,678
-----------------------------------------------------------------------------------------
Note: The Trust for Public Land was incorporated on May 5, 1972; it
had no acres on hand as of that date.
\a These acres were transferred to a regional water management
district within Florida.
Source: The Trust for Public Land.
As tables IV.1 to IV.3 show, the three nonprofit organizations
transferred about 3.2 million acres to federal, state, or local
governments or to other conservation organizations or individuals
through sales, donations, or exchanges during the 30-year period.
OBJECTIVES, SCOPE AND METHODOLOGY
=========================================================== Appendix V
The Chairman of the House Committee on Resources and Representative
Richard Pombo asked us to obtain information on the
changes in federal land ownership and the number of acres with
limitations on their use;
means by which the federal government acquires land, and the
acreage it plans to acquire;
federal acreage where hunting and other activities are not allowed;
number of privately owned acres subject to federal regulatory
control; and
number of nonfederal acres to which the federal government has
obtained rights-of-use, such as easements.
In addition, the Committee asked us to obtain information on the
acreage
held in trust for individual Indians and Indian tribes,
owned by 13 western states, and
involved in the land transactions of nonprofit organizations.
To fulfill these objectives, we interviewed officials and obtained
and reviewed relevant documents and other data from five
agencies--the U.S. Department of Agriculture's Forest Service and
the Department of the Interior's Bureau of Land Management, Fish and
Wildlife Service, National Park Service, and Bureau of Indian
Affairs. We also obtained computerized data files from the agencies
and agencies' reports on the lands they managed. As agreed with the
requesters' offices, we did not verify the completeness, accuracy,
and reliability of the data maintained in the agencies' databases.
Such verification would require a significant investment of time and
resources because the database contained an immense volume of data.
We did, however, take steps to reconcile inconsistencies in the data
contained in the agencies' computerized data files and printed
reports. We interviewed senior-level land management officials at
each of these agencies' headquarters as well as at selected field
locations.
We were unable to identify credible sources of data on how much
private property is subject to federal regulatory controls. Hence,
we limited our review to information on the extent to which wetland
determinations under the Clean Water Act and critical habitat
designations under the Endangered Species Act have affected private
lands. The results of this work are limited because data were
unavailable.
To determine the number of acres owned by the states, we identified
12 western states--Alaska, Arizona, California, Colorado, Idaho,
Montana, Nevada, New Mexico, Oregon, Utah, Washington, and
Wyoming--where the federal government owns at least 25 percent of the
state's acreage. In addition, we were asked to include Texas. We
sent a survey to the official in each state who was responsible for
managing the state's land. When the data were not centrally located,
we contacted other state officials within these states for
information on acreage. State officials in most of the states said
that the number of acres was estimated or derived from the best
available data.
We obtained information on the acreage that three nonprofit
conservation organizations--the Nature Conservancy, The Conservation
Fund, and The Trust for Public Lands--had acquired and transferred to
federal, state, and/or local governments and others. We selected
these organizations because they were the nonprofit organizations
that had transferred the most acreage to one or more of the four
federal land management agencies during the 1990s.
We attempted to use the statistics published by the General Services
Administration on the acreage managed by each federal agency\1 but
found that these data were not current or reliable.
This report does not include information on U.S. territories,
insular possessions, or the District of Columbia.
--------------------
\1 See the General Service Administration's report entitled Summary
Report of Real Property Owned by the United States Throughout the
World, as of September 30, 1992 (Sept. 1994).
MAJOR CONTRIBUTORS TO THIS REPORT
========================================================== Appendix VI
ENERGY, RESOURCES, AND SCIENCE
STAFF
Lloyd L. Adams
Sherry L. Casas
Paul O. Grace
Ronald J. Johnson
Cynthia S. Rasmussen
Ned L. Smith
William J. Temmler
Arthur D. Trapp
Felicia A. Turner
*** End of document. ***