Land Management: The Forest Service's and BLM's Organizational Structures
and Responsibilities (Chapter Report, 07/29/1999, GAO/RCED-99-227).

Pursuant to a congressional request, GAO provided information on: (1)
the operational and demographic profiles of the Forest Service and the
Bureau of Land Management (BLM); and (2) GAO's observations on the major
similarities and differences emerging from this information.

GAO noted that: (1) the Forest Service and BLM manage their federal
lands for multiple uses through a multilevel--headquarters and field
office--organizational structure; (2) the agencies are responsible for
managing the same types of natural resources--such as timber, minerals,
grazing, recreation, and wildlife--on about 70 percent of all public
lands; (3) these lands represent about 21 percent of the nation's total
service area, primarily in the West; (4) the agencies' lands are mostly
contiguous, and some of their 1,064 offices are in the same location or
in close proximity; (5) with over 44,000 multidisciplined permanent and
temporary employees, the agencies' workforces are primarily white
collar; a large portion of the employees are in scientific disciplines
such as the biological sciences, the physical sciences, engineering and
architecture; (6) the total obligations for these agencies amounted to
$4.2 billion in fiscal year (FY) 1998, and their largest appropriations
fund similar budget categories dealing with the management of rangelands
and forestlands, wildlife and fisheries, and recreation; (7) during FY
1998, the Forest Service generated about $576 million in receipts from
the sale or use of natural resources, and BLM generated about $140
million; (8) the organizational and demographic profiles of the Forest
Service and BLM are similar in many respects, including the agencies'
missions and goals, the amount of land managed in the lower 48 states,
the purposes for which the lands are managed, the types of employees
hired, the location and type of offices maintained, the budget
categories incurring the largest obligations, the activities performed
under these budget categories, and the types of receipts generated; (9)
yet while these similarities exist, the agencies differ in terms of
their magnitude and emphasis; (10) the Forest Service is a much larger
organization in most of the attributes GAO examined, and each agency
emphasizes different resource uses; (11) in addition, each of the
agencies has several unique functions; and (12) the Forest Service has a
large forest and rangeland research program and BLM has certain
governmentwide programs that do such things as administering mining laws
and making payments in lieu of taxes for the entire government.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  RCED-99-227
     TITLE:  Land Management: The Forest Service's and BLM's
	     Organizational Structures and Responsibilities
      DATE:  07/29/1999
   SUBJECT:  Land management
	     Forest management
	     Public lands
	     National forests
	     Comparative analysis
	     Forestry legislation
	     Environmental law
	     Agency missions
	     Redundancy
IDENTIFIER:  Pacific Northwest Forest Plan
	     Forest Service Timber Sales Program
	     Knutson-Vandenberg Trust Fund

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Cover
================================================================ COVER

Report to the Chairman,
Committee on the Budget,
House of Representatives

July 1999

LAND MANAGEMENT - THE FOREST
SERVICE'S AND BUREAU OF LAND
MANAGEMENT'S ORGANIZATIONAL
STRUCTURES AND RESPONSIBILITIES

GAO/RCED-99-227

Profiles of the Forest Service and BLM

(141247)

Abbreviations
=============================================================== ABBREV

  BLM - Bureau of Land Management
  FTEs - full-time equivalents
  GAO - General Accounting Office

Letter
=============================================================== LETTER

B-282951

July 30, 1999

The Honorable John R.  Kasich
Chairman, Committee on the Budget
House of Representatives

Dear Mr.  Chairman: 

In response to your request, we are reporting on (1) the operational
and demographic profiles of the Forest Service and the Bureau of Land
Management and (2) our observations on the major similarities and
differences emerging from this information. 

As arranged with your office, unless you publicly announce its
contents earlier, we plan no further distribution of this report
until 14 days after the date of this letter.  At that time, we will
send copies of this report to the Honorable Bruce Babbitt, Secretary
of the Interior; Tom Fry, Acting Director, Bureau of Land Management;
the Honorable Daniel R.  Glickman, Secretary of Agriculture; Mike
Dombeck, Chief, Forest Service; appropriate congressional committees;
and the Honorable Jacob J.  Lew, Director, Office of Management and
Budget.  We will make copies available to others upon request. 

Please call me on (206) 287-4810 if you or your staff have any
questions on this report. 

Sincerely yours,

James K.  Meissner
Associate Director, Energy,
 Resources, and Science Issues

EXECUTIVE SUMMARY
============================================================ Chapter 0

   PURPOSE
---------------------------------------------------------- Chapter 0:1

Managing federal lands and the natural resources contained on them
raises significant controversy between the appropriate levels of
consumption and the appropriate need to conserve these lands and
resources for generations to come.  The Bureau of Land Management and
the Forest Service are two of the largest land management agencies
responsible for implementing national policy on the consumption and
conservation of natural resources.  Debates continue among interested
parties--the Congress, federal agencies, state agencies, and private
interests--concerning the most efficient and effective means of
accomplishing the goals of the federal government's land management
agencies.  But the final decisions must flow from the Congress, which
must decide how much funding--and for what programs--the land
management agencies receive compared with the pressing needs of all
government programs. 

To provide the Congress with sufficient information for making these
land management decisions, the Chairman, House Committee on the
Budget, requested that GAO (1) provide a comprehensive demographic
and organizational profile of the Bureau of Land Management and the
Forest Service, including information about each agency's managed
lands; mission, goals, structure, roles, and responsibilities;
location, type, and number of offices; activities and obligations;
and receipts generated; and (2) provide observations on the major
similarities and differences emerging from this information. 

   BACKGROUND
---------------------------------------------------------- Chapter 0:2

Federal agencies manage about 650 million acres of land nationwide. 
Most of these federally managed acres are under the jurisdiction of
two agenciesï¿½the Bureau of Land Management, within the Department of
the Interior, and the Forest Service, within the U.S.  Department of
Agriculture.  Each of these agencies has specific legislation guiding
how its lands are to be used, and each manages its lands under the
principle of multiple-use, sustained yield, which assumes a continued
high level of resource outputs without impairing the productivity of
the lands.  That is, both agencies manage their lands for such uses
as mining, grazing, timber harvesting, and recreation, and no one use
is considered to be primary. 

   RESULTS IN BRIEF
---------------------------------------------------------- Chapter 0:3

The Forest Service and the Bureau of Land Management manage their
federal lands for multiple uses through a multilevel--headquarters
and field office--organizational structure.  The agencies are
responsible for managing the same types of natural resources--such
as, timber, minerals, grazing, recreation, and wildlife--on about 70
percent of all public lands.  These lands represent about 21 percent
of the nation's total surface areaï¿½primarily in the West.  The
agencies' lands are mostly contiguous, and some of their 1,064
offices are in the same location or in close proximity.  With over
44,000 multidisciplined permanent and temporary employees, the
agencies' workforces are primarily white collar; a large portion of
the employees are in scientific disciplines such as the biological
sciences, the physical sciences, engineering and architecture.  The
total obligations for these agencies amounted to $4.2 billion in
fiscal year 1998, and their largest appropriations fund similar
budget categories dealing with the management of rangelands and
forestlands, wildlife and fisheries, and recreation.  During fiscal
year 1998, the Forest Service generated about $576 million in
receipts from the sale or use of natural resources, and the Bureau of
Land Management generated about $140 million.\1

The organizational and demographic profiles of the Forest Service and
the Bureau of Land Management are similar in many respects, including
the agencies' missions and goals, the amount of land managed in the
lower 48 states, the purposes for which the lands are managed, the
types of employees hired, the location and type of offices
maintained, the budget categories incurring the largest obligations,
the activities performed under these budget categories, and the types
of receipts generated.  Yet while these similarities exist, the
agencies differ in terms of their magnitude and emphasis.  For
example, the Forest Service is a much larger organization in most of
the attributes we examined, and each agency emphasizes different
resource uses--most of Forest Service's lands are forests while most
of Bureau of Land Management's lands are rangelands.  In addition,
each of the agencies has several unique functions.  For example, the
Forest Service has a large forest and rangeland research program and
the Bureau of Land Management has certain governmentwide programs
that do such things as administering mining laws and making ï¿½Payments
in Lieu of Taxesï¿½ for the entire government.\2

--------------------
\1 In addition to the receipts collected by the Bureau of Land
Management and the Forest Service, the Minerals Management Service
(within the Department of the Interior) collected almost $1.1 billion
in receipts generated from Bureau of Land Management lands and $59
million in receipts generated from Forest Service lands during fiscal
year 1998. 

\2 The Bureau of Land Management compensates counties to provide
Payments in Lieu of Taxes that would have been received by these
jurisdictions if the federal lands were privately owned. 

   GAO'S ANALYSIS
---------------------------------------------------------- Chapter 0:4

      ORGANIZATIONAL AND
      DEMOGRAPHIC PROFILES
-------------------------------------------------------- Chapter 0:4.1

The Bureau of Land Management, established in 1946 within the
Department of the Interior, manages about 264 million acres of public
landsï¿½nearly 12 percent of the nation's total surface area and about
40 percent of all federal lands.  The Bureau's lands are primarily in
the 11 western states and Alaska, but the Bureau also manages an
additional 300 million acres of subsurface mineral resources located
throughout the country.  The Bureau's workforce includes more than
10,000 permanent and temporary employees located in 189 offices,
which include headquarters, national centers, and field offices. 
Annually, the Bureau spends about $1.2 billion to operate and manage
its organization and lands and generates about $140 million in
receipts from its various operations. 

  -- Among the budget categories with the largest obligations in
     fiscal year 1998 were Land Resources, at $133 million; Payments
     in Lieu of Taxes, at $120 million; and Workforce and
     Organizational Support, at $119 million.  When taken together,
     the Wildland Fire Preparedness and Wildland Fire Operations
     obligations totaled almost $168 million.  These obligations used
     about 5,275 full-time equivalents in fiscal year 1998.\3

  -- The Bureau's state offices and associated field offices with the
     largest obligations included Oregon, with $193 million; Alaska,
     with $87 million; and California, with $80 million.

  -- Among the receipts generated, timber sales totaled almost $54
     million, mineral leases and permits totaled almost $46 million,
     and grazing fees totaled about $14 million.  Oregon, Nevada, and
     Wyoming generated the largest amounts of receipts. 

The Forest Service, established in 1905 within the U.S.  Department
of Agriculture, manages about 192 million acres of public lands in
national forests and grasslandsï¿½about 9 percent of the nation's total
surface area and about 29 percent of all federal lands.  Forest
Service lands are located in 44 states, the Virgin Islands, and
Puerto Rico.  The Forest Service's workforce includes more than
34,000 permanent and temporary employees located in a total of 875
offices, including headquarters, regional, forest, ranger district,
research, Job Corps Centers, and other offices in 45 states, Puerto
Rico, and the District of Columbia.  Annually, the Forest Service
spends about $3 billion to operate and manage its organization and
lands and generates about $576 million in receipts from its various
operations. 

  -- Among the Forest Service's budget categories with the largest
     obligations in fiscal year 1998 were Fire Presuppression and
     Suppression and Rehabilitation, at about $532 million; General
     Administration, at $239 million; Forestland Management, at about
     $232 million; and Recreation Use, at about $195 million.  These
     activities employed about 18,255 full-time equivalents in fiscal
     year 1998.

  -- The regions with the largest obligations were the Pacific
     Southwest Region, at about $454 million; the Southern Region, at
     $364 million; and the Pacific Northwest Region, at about $334
     million.

  -- Among the receipts generated, timber sales and timber-related
     activities accounted for about $495 million, or 86 percent of
     the Forest Service's receipts.  Recreation activities accounted
     for about $43 million, and minerals activities accounted for
     another $20 million.  The states with the largest amounts of
     receipts were Oregon, California, and Idaho. 

--------------------
\3 Full-time equivalent, or FTE, generally consists of one or more
employed individuals who collectively complete 2,080 work hours in a
given year. 

      OBSERVATIONS ON THE
      AGENCIES' PROFILES
-------------------------------------------------------- Chapter 0:4.2

The organizational and demographic profiles of the Forest Service and
the Bureau of Land Management are similar, but the agencies differ in
terms of magnitude and emphasis.  For example, the Forest Service is
a much larger organization in that it has 3 times the number of
employees, 3 times the amount of appropriations and obligations, more
than 3 times the amount of receipts generated, and over 4 times as
many offices throughout the country.  Conversely, in a comparison of
total acres managed by these agencies, the Bureau of Land
Management's lands are significantly vaster than the lands managed by
the Forest Service, because of the former's holdings in Alaska. 
However, the amount of land managed within the contiguous 48 states
is about the same for the two agencies; most of the Forest Service's
lands are forests, and most of the Bureau of Land Management's lands
are rangelands.  Finally, the Forest Service's and Bureau of Land
Management's funding structures are similar in that both agencies are
funded through annual and permanent appropriations and trust
funds--as part of the overall Interior and Related Agencies
appropriation.  Overall, the agencies' descriptions of the tasks
performed under each of their budget categories are similar, if not
identical, for 18 of the 41 major budget categories.  For example,
both agencies have an appropriation entitled Wildland Fire Management
that includes two budget categories for wildland fire preparedness
and wildland fire operations. 

While the Forest Service and the Bureau of Land Management share many
similarities in their organizational and demographic profiles, each
agency has unique functions that contribute to its overall mission
and goals and differentiate the agencies.  For example, the Forest
Service has several functions that the Bureau of Land Management does
not, such as a large forest and rangeland research organization with
85 research offices nationwide and a separate, nationwide state and
private forestry organization.  Similarly, the Bureau of Land
Management is responsible for certain activities that the Forest
Service is not, such as maintaining the nation's public lands and
realty data, administering mining laws, and making the Payments in
Lieu of Taxes for the entire government. 

Because of decreased agency budgets and decreased staffing through
governmentwide downsizing coupled with an increased emphasis on
improving customer service, the Bureau of Land Management and the
Forest Service have increased the number and types of shared
initiatives that they undertake.  The agencies' most notable joint
initiative relates to the multi-million-dollar efforts to prevent,
control, and extinguish the nation's wildland fires on state and
federal lands.  Other shared initiatives include conducting local
efforts to improve customer service, jointly conducting watershed
analyses, jointly managing fish habitats, jointly examining abandoned
mines for reclamation-planning purposes, coordinating and cooperating
on the implementation of the President's Pacific Northwest Forest
Plan, and cosponsoring courses dealing with the design of recreation
environments. 

   RECOMMENDATIONS
---------------------------------------------------------- Chapter 0:5

GAO is not making recommendations in this report. 

   AGENCY COMMENTS
---------------------------------------------------------- Chapter 0:6

GAO provided the Bureau of Land Management and the Forest Service
with a draft of this report for comment.  The Forest Service
commented that the report accurately and fairly represents the
information collected about the Forest Service.  The Bureau of Land
Management had no comments other than certain technical
clarifications, which we incorporated in this report. 

INTRODUCTION
============================================================ Chapter 1

Federal agencies manage about 650 million acres of land nationwide,
which are managed mostly by the agencies within the Department of the
Interior and the Forest Service.  About 70 percent of these federally
managed lands are under the jurisdiction of two agenciesï¿½the Bureau
of Land Management (BLM), within the Department of the Interior and
the Forest Service, within the U.S.  Department of Agriculture. 
These lands represent about 21 percent of the nation's total
surface--primarily in the West.  These agencies, with over 44,000
employees, spent about $4.2 billion in fiscal year 1998 to manage
their lands and operations.  Both of these agencies have specific
legislation guiding how their lands are to be used, and both manage
their lands under the principle of multiple-use, sustained yield. 
That is, both agencies manage their lands for such uses as mining,
grazing, timber harvesting, and recreation, and no one use is
considered to be primary. 

While the uses of the federal lands are many, considerable
controversy surrounds these uses and how the agencies manage their
lands currently and for future generations to come.  The Congress
faces a multitude of decisionsï¿½from how much to fund these agencies
during the annual appropriations process to how these agencies manage
specific programs.  The Congress must balance the pressures and
demands of greater use of the nation's natural resources and current
consumption levels with the need to conserve and protect them for
future generations.  Coupling these decisions with limited funding
for all national programs, the Congress faces some tough choices
annually. 

   OBJECTIVES, SCOPE, AND
   METHODOLOGY
---------------------------------------------------------- Chapter 1:1

As an initial step in developing a larger body of information upon
which the Congress can make these decisions, the Chairman, House
Committee on the Budget, requested that we provide (1) a
comprehensive demographic and organizational profile of two of the
largest land management agenciesï¿½the Bureau of Land Management and
the Forest Service--including information about each agency's managed
lands; mission, goals, structure; organizational roles and
responsibilities; location, type, and number of offices; activities
and obligations; and receipts generated; and (2) observations on the
major similarities and differences emerging from this information. 

This report provides information on both agencies separately and
concludes with observations on the major similarities and differences
of the agencies, which are based on their demographic and
organizational profiles.  Chapter 2 discusses the profile of BLM,
while chapter 3 provides the profile of the Forest Service.  Chapter
4 provides our observations on the major similarities and differences
and a discussion of joint BLM/Forest Service initiatives currently
under way.  The text of the report is supplemented by a series of
appendixes that provide detailed information on the BLM and Forest
Service dealing with occupational job series; the number, type, and
location of offices; a description of the activities undertaken under
each budget category; obligations and full-time equivalents (FTEs);
and receipts generated. 

To obtain much of the information presented in this report, we relied
on agency publications such as manuals, budget justifications, and
annual reports.  In some instances, we asked the agency to provide us
with sufficient information that would allow us to prepare the
various segments of the demographic and organizational profiles.  In
other instances, we asked the agencies for the raw data and
reformatted the data to present the results.  Appendix VIII provides
a detailed discussion of our scope and methodology. 

We conducted our work from November 1998 through June 1999 in
accordance with generally accepted government auditing standards. 
Key contributors to this report were Linda L.  Harmon; John P. 
Murphy, Jr.; Judy K.  Pagano; and June M.  Foster. 

   AGENCY COMMENTS
---------------------------------------------------------- Chapter 1:2

We provided the Forest Service and BLM with a draft of this report
for comment prior to its issuance.  The Forest Service commented that
the report accurately and fairly represents the information collected
about the Forest Service.  The Bureau of Land Management had no
comments other than certain technical clarifications, which we
incorporated in this report. 

PROFILE OF THE BUREAU OF LAND
MANAGEMENT
============================================================ Chapter 2

Established in 1946 within the Department of the Interior, BLM
manages about 264 million acres of public landsï¿½about 12 percent of
the nation's total surface area and about 40 percent of all federal
lands.  BLM's lands are primarily in the 11 western states and
Alaska, but the agency also manages an additional 300 million acres
of subsurface mineral resources located throughout the country. 
BLM's workforce includes more than 10,000 permanent and temporary
employees located in 189 offices including headquarters, national
centers, and field offices.  Annually, BLM spends about $1.2 billion
to operate and manage its organization and lands and generates about
$140 million in receipts from its various operations. 

   BLM-MANAGED LANDS
---------------------------------------------------------- Chapter 2:1

In fiscal year 1998, BLM managed about 264 million acres of
landï¿½about one-eighth of the land in the United Statesï¿½more than any
other federal agency.  BLM also manages 300 million additional acres
of subsurface mineral resources.  Most of the land that BLM manages
is located in the 11 western states and Alaska and is dominated by
extensive grasslands, forests, high mountains, arctic tundra, and
deserts.  BLM manages these lands for a wide variety of resources and
uses, including energy and minerals; timber; forage; wild horse and
burro populations; fish and wildlife habitat; wilderness areas;
archaeological, paleontological, and historical sites; and other
natural heritage values.  Figure 2.1 shows the acres of lands managed
by BLM in each state. 

   Figure 2.1:  Acres of Land
   Managed by BLM in Each State

   (See figure in printed
   edition.)

Note:  This map shows only the surface areas of each state managed by
BLM and does not include the 300 million acres of subsurface minerals
located throughout the country. 

Source:  GAO's presentation of BLM's data. 

   ORGANIZATIONAL MISSION AND
   STRUCTURE
---------------------------------------------------------- Chapter 2:2

In conjunction with other Department of the Interior agencies, BLM is
responsible for protecting and providing access to the nation's
natural and cultural heritage.\1 In this role, BLM manages land in
the United States in cooperation with a variety of partners at the
federal, state, and local levels.  According to BLM, its multilevel
organization--which consists of national, state, and field
offices--is structured to carry out a variety of programs and
activities that will facilitate the preservation of the nation's
natural resources for future generations. 

--------------------
\1 The other Interior agencies are the National Park Service, the
Fish and Wildlife Service, the Minerals Management Service, the
Office of Surface Mining Reclamation and Enforcement, and the Bureau
of Reclamation. 

      MISSION AND GOALS
-------------------------------------------------------- Chapter 2:2.1

The basic authority for BLM's activities is the Federal Land Policy
and Management Act of 1976, as amended (43 U.S.C.  1701 et seq.). 
The act established the principle that public lands be retained in
federal ownership and provided for the management, protection,
development, and enhancement of the public lands under the principles
of multiple-use and sustained yield.\2

According to BLM, its mission is to sustain the health, diversity,
and productivity of the public lands for the use and enjoyment of
present and future generations.  Pursuant to this mission, BLM's
goals are to

  -- restore and maintain the health of the land,

  -- serve current and future publics and encourage sound use
     practices,

  -- promote collaborative leadership and foster more inclusive
     decisions and better accountability,

  -- improve the way that BLM does business, and

  -- recruit, develop, and retain a quality and diverse workforce. 

In carrying out its mission, BLM aims to provide the public with a
wide variety of products and services, including healthy productive
lands; opportunities for a variety of commercial activities such as
sales of materials, timber, or leasing mineral rights; opportunities
for recreation and leisure activities; the preservation of
significant cultural and natural features; the provision of land
resource and title information; and the protection of public health,
safety, and natural resources. 

--------------------
\2 Under the multiple-use principle, the agencies plan for six
renewable surface uses--outdoor recreation, rangeland, timber,
watersheds and water flows, wilderness, and wildlife and fish.  Under
the sustained-yield principle, the agencies are required to manage
their lands to provide high levels of these uses to current users
while sustaining, undiminished, the lands' ability to produce these
uses for future generations. 

      ROLES AND ORGANIZATIONAL
      STRUCTURE
-------------------------------------------------------- Chapter 2:2.2

BLM's organizational structure includes national, state, and field
organizations.  The national organization includes its headquarters'
operations and national centers having specific assigned service and
support responsibilities.  The state organization consists of 12
state offices, which are responsible for implementing BLM's
activities in one or more state jurisdictions.  The field
organization consists of 175 field offices, which provide direct
customer services and execute ï¿½on-the-groundï¿½ management of the
public lands and resources within BLM's jurisdiction, under the
supervision of a BLM state office.  BLM staffs these offices with
about 10,500 employees in various occupational classifications. 

Figure 2.2 shows the administrative jurisdictions and locations of
BLM's national headquarters, national centers, states offices, and
national interagency fire center. 

   Figure 2.2:  BLM's
   Administrative Jurisdictions

   (See figure in printed
   edition.)

Source:  BLM. 

Figure 2.3 shows the organizational structure of BLM and its field
components. 

   Figure 2.3:  BLM's
   Organizational Structure,
   Fiscal Year 1998

   (See figure in printed
   edition.)

Source:  BLM. 

      ROLE OF THE NATIONAL
      ORGANIZATION
-------------------------------------------------------- Chapter 2:2.3

The national headquarters and its seven national centers provide
strategic direction, policy leadership, legislative and regulatory
involvement, and oversight and evaluation of its operations, and
provide internal and external audiences with communications regarding
BLM's multiple operations and activities.  Specifically, the national
organization does the following: 

  -- Identifies/articulates BLM's mission, goals, and priority
     program efforts and the nature of BLM's activities, including
     trends, challenges, and issues.  Headquarters prepares the BLM
     Strategic Plan and Performance Plans under the Government
     Performance and Results Act and develops strategic analyses and
     action plans, budgets, and guidance documents that articulate
     BLM's goals, objectives, and directions for the future.

  -- Initiates efforts to develop, revise, and refine BLM's policies;
     resolves policy issues whether the source is external or
     internal; and explains and documents how policies will be
     implemented.

  -- Communicates BLM's policies, needs, and accomplishments at the
     national level to the media, Members of Congress, national
     organizations, partners, stakeholders, and customers.

  -- Develops bureauwide resource budgets and allocates the funds
     among the major operating components of BLM for budget
     execution.

  -- Facilitates legislative and regulatory changes needed to
     accomplish BLM's mission.

  -- Evaluates program effectiveness bureauwide and the
     accountability of field office mangers in implementing program
     policy, using among other types of input, performance measures
     and customer research data. 

      ROLE OF THE STATE OFFICE
-------------------------------------------------------- Chapter 2:2.4

BLM's 12 state officesï¿½which are BLM's equivalent to regional
officesï¿½are each headed by a State Director.  Each state office is
responsible for carrying out BLM's mission within a specific
geographical jurisdiction consisting of one or more states as shown
in table 2.1. 

                               Table 2.1
                
                    BLM State Offices' Locations and
                             Jurisdictions

State office                    Location            Jurisdiction
------------------------------  ------------------  ------------------
Alaska                          Anchorage           State of Alaska

Arizona                         Phoenix             State of Arizona,
                                                    plus a narrow
                                                    strip of the
                                                    California side of
                                                    the Colorado River

California                      Sacramento          State of
                                                    California, less
                                                    the portion
                                                    administered by
                                                    the Arizona State
                                                    Office, plus a
                                                    portion of
                                                    northwestern
                                                    Nevada

Colorado                        Denver              State of Colorado

Eastern States Office           Springfield, Va.    All states
                                                    bordering on or
                                                    east of the
                                                    Mississippi River

Idaho                           Boise               State of Idaho

Montana                         Billings            States of Montana,
                                                    North Dakota, and
                                                    South Dakota

Nevada                          Reno                State of Nevada,
                                                    except that
                                                    portion
                                                    administered by
                                                    the California
                                                    State Office

New Mexico                      Santa Fe            States of New
                                                    Mexico, Oklahoma,
                                                    Kansas, and Texas

Oregon                          Portland            States of Oregon
                                                    and Washington

Utah                            Salt Lake City      State of Utah

Wyoming                         Cheyenne            States of Wyoming
                                                    and Nebraska
----------------------------------------------------------------------
Source:  BLM. 

The state offices provide BLM's regional mission direction and
leadership; identify BLM's regional goals, objectives, and priority
efforts under BLM's ï¿½Corporate Agendaï¿½; provide input for national
leadership efforts; and communicate the administration's, the
Department of the Interior's, and BLM's priorities to the field
offices.  State offices provide statewide policy interpretation,
resolve policy implementation issues, and provide leadership in
developing, revising and refining BLM's policies affecting the
state's activities, whether the source is internal or external. 
State offices are responsible for communicating policies, priorities,
and accomplishments at the state level to the public, the media,
state governmental organizations, and BLM partners.  In addition,
state offices conduct interagency coordination with other federal and
state agencies, and, when feasible, share resources across agency
jurisdictions to support common missions and achieve efficiencies in
customer service, resource utilizations, and/or administrative
operations. 

The state offices provide field offices, national teams, and task
forces with technical resource management expertise.  State offices
provide quality assurance processes for field activities and customer
service delivery and evaluate the effectiveness of BLM's products and
services delivery, its customer service responsiveness, and field
performance in the achievement of goals for improving the condition
of resources.  In addition, the state offices provide selected BLM
product and service components (e.g., public room operations, land
and mineral records and case adjudication, land appraisals,
cartography and mapping support, and criminal investigations) where
economies of scale support efficiency in centralization at that
level.  Finally, state offices provide administrative support
services for the statewide organization, such as budget management
and the acquisition of reimbursable and nonfederal funds, the
servicing of personnel office and equal employment opportunity
operations, procurement and contracting support, and information
resource management. 

      ROLE OF FIELD OFFICES
-------------------------------------------------------- Chapter 2:2.5

Traditionally, BLM has numerous resource area offices reporting to
district offices, which in turn reported to state offices--commonly
referred to as a three-tier field structure.  However, BLM is in the
process of reorganizing its field structure to a two-tier operation,
generally composed of only state and field offices.  Under this
structure, all field offices would report to their respective state
office.  BLM plans to complete the reorganization of its field
structure by the end of fiscal year 1999. 

Field offices staff are organized on a multidisciplinary basis and
have full responsibility for managing public land resources, the
delivery of BLM's products and services, and customer service to land
users and the public for a designated portion of the geographic area
under the jurisdiction of a state office.  The field offices manage a
wide variety of resources and uses to sustain and improve the health
and productivity of the public lands.  In managing the public lands,
the field offices perform a variety of functions, which include
taking inventory of the resources; preparing land use plans and
assessing environmental impacts; conducting land surveys; issuing
leases and use authorizations to public land users; enforcing permit
conditions; designing and constructing roads and other improvements;
restoring fish and wildlife habitat; identifying significant natural,
cultural, and recreational resources; and monitoring resource
conditions. 

In addition, field offices conduct operational functions, such as the
maintenance of roads and recreation facilities or fire fighting,
except where economies of scale warrant centralization at a different
level.  The field offices serve as the primary local point of contact
for BLM's customers and stakeholders--that is, local governments,
public land users, the general public, and other federal and state
agencies.  The field offices communicate BLM's Corporate Agenda
goals, as well as the administration's, the Department of the
Interior's and BLM's policies, priorities, procedures, and
accomplishments at the local level to the public, the media, local
organizations, and partner groups.  Field offices also conduct local
administrative support tasks such as the collection of receipts,
purchasing, and property management and share resources across either
field office and/or agency jurisdictions when feasible to support
common missions and achieve efficiencies in customer service,
resource utilization, and administrative operations. 

      TYPES OF OCCUPATIONS
-------------------------------------------------------- Chapter 2:2.6

In fiscal year 1998, BLM had employees in 203 different types of
occupational classifications.  About 83 percent of the jobs were
classified as white collar jobs, and the remainder were classified
under the Federal Wage System for trades and labor occupations in the
federal government.  BLM had a total of 10,456 employees in the
various occupational classifications--8,910 employees were permanent,
and 1,546 employees were temporary. 

A few occupational groups contained the majority of the permanent
employee job series, including the following: 

  -- The Biological Sciences Group included 2,322 employees in
     various job series including 509 in General Biological Science,
     451 Range Technicians, 352 in Rangeland Management, 190 in
     Forestry, 315 Forestry Technicians, and 232 in Wildlife Biology.

  -- The General Administration, Clerical, and Office Services Group
     included 2,090 employees in various series including
     miscellaneous administration, clerks, assistants, receptionists,
     and secretaries; computer operations, computer specialists, and
     clerks; and program management and management and program
     analysis.

  -- The Physical Sciences Group had 806 employees in various series
     including General Physical Science, Geology; Cartography and
     Cartographic Technician, and Land Surveying.

  -- The Engineering and Architecture Group had 590 jobs in various
     series including Engineering Technician, Petroleum Engineering,
     Civil Engineering, and Mining Engineering. 

Appendix I provides a complete listing of all BLM occupational
groupings by job series and includes the number of permanent and
temporary employees as of the end of fiscal year 1998. 

   LOCATION, TYPE, AND NUMBER OF
   BLM OFFICES
---------------------------------------------------------- Chapter 2:3

At the end of fiscal year 1998, BLM had 189 offices nationwide
located in 20 states and the District of Columbia, the preponderance
of which are located in the 12 western states.  The national
organization had two facilities at the headquarters level and seven
national technical centers.  Twelve state offices and a field
organization included 92 field offices, 38 resources area offices,
and 27 district offices.  The remaining 11 offices included project
offices and the Alaska fire service and related offices.  Figure 2.4
shows the geographic dispersion of the BLM offices. 

   Figure 2.4:  Geographic
   Dispersion of BLM's Offices

   (See figure in printed
   edition.)

Source:  GAO's analysis of BLM's data. 

At times, BLM houses more than one organizational unit in the same
building and these were treated the same as separate BLM offices. 
For example, if a district office and a resource area office were
located in the same building, a box with a star is shown.  Appendix
II provides information on the number and type of offices by state. 
As previously mentioned, some state offices have jurisdiction over
more than one state. 

   FUNDING STRUCTURE, OBLIGATIONS,
   AND FULL-TIME EQUIVALENTS
---------------------------------------------------------- Chapter 2:4

In fiscal year 1998, BLM's sources of funding included 10
appropriations and various permanent and trust funds.  BLM's largest
appropriation--Management of Lands and Resources--had obligations of
$645.1 million and 7,790 FTEs.  These obligations and FTEs were
charged to various budget activities, including Land Resources,
Wildlife and Fisheries, Recreation Management, Energy and Minerals,
Realty and Ownership Management, Resource Protection and Maintenance,
and Workforce and Organizational Support.  Each of the appropriations
and other funding sources were further divided into budget activities
for BLM's various programs.  BLM's fiscal year 1998 obligations
totaled about $1.2 billion and included FTEs of 12,676 in the 41
major budget activities as shown in appendix IV.\3 However, for ease
of presentation, we combined all budget activities with obligations
of less than $10 million in table 2.2. 

                               Table 2.2
                
                  BLM's Obligations and FTEs by Budget
                       Activity, Fiscal Year 1998

                                                Obligation
Budget activity name                                     s      FTEs\a
----------------------------------------------  ----------  ----------
Land Resources                                  $133,299,6     1,879.9
                                                        07
Payments in Lieu of Taxes                       120,000,00         1.3
                                                         0
Workforce and Organizational Support            119,137,40       843.3
                                                         2
Wildland Fire Preparedness                      92,179,142     1,456.3
Western Oregon Resources Management             85,908,693     1,183.3
Wildland Fire Operations                        75,644,943     1,095.3
Energy and Minerals                             74,530,821     1,155.2
Realty and Ownership Management                 70,629,078     1,023.7
Resource Protection and Maintenance             70,425,475       848.9
Recreation Management                           49,757,656       789.6
Automated Land and Minerals Records System      39,485,856       101.6
Mining Law Administration                       37,012,175       488.5
Wildlife and Fisheries                          29,726,326       379.0
Working Capital Fund                            19,598,424        20.9
Threatened and Endangered Species               17,936,530       234.4
Reimbursables                                   16,560,265       139.0
Land Acquisition                                15,514,408        46.6
Western Oregon Facilities Maintenance           14,598,471       134.1
Helium Fund and Operations                      12,158,087       141.6
Western Oregon Construction and Acquisition     11,317,973        50.0
Jobs in the Woods                               10,184,731        33.9
Miscellaneous Trust Funds                       10,009,302        86.6
Other Activity Items\                           56,224,688       542.8
======================================================================
Total                                           $1,181,840    12,675.8
                                                      ,053
----------------------------------------------------------------------
\a The FTE amount includes both regular and overtime hours in the
calculation. 

Source:  GAO's analysis of BLM's data. 

The geographic dispersion of BLM's obligations is consistent with the
location of its offices.  With the exception of its Washington Office
headquarters, the 11 western states and Alaska incurred about 98
percent of the total obligations as shown in table 2.3. 

                               Table 2.3
                
                Obligations by Major BLM Office, Fiscal
                               Year 1998

                                                Obligation
Reporting office                                         s       FTEs\
----------------------------------------------  ----------  ----------
Washington Office\a                             $282,782,1     2,006.5
                                                        85
Oregon State Office                             192,859,28     2,208.6
                                                         3
Operating Centers                               133,902,22       941.0
                                                         8
Alaska State Office                             87,149,492       976.7
California State Office                         80,428,465     1,030.4
Nevada State Office                             57,365,689       767.6
Utah State Office                               55,629,691       646.0
Idaho State Office                              51,710,307       788.0
New Mexico State Office                         49,916,723       651.1
Wyoming State Office                            45,507,934       671.6
Colorado State Office                           43,662,287       599.4
Montana State Office                            42,213,023       580.0
Arizona State Office                            40,824,644       547.5
Eastern States                                  17,888,100       261.3
======================================================================
Total                                           $1,181,840    12,675.8
                                                      ,053
----------------------------------------------------------------------
\a Washington Office obligations include $232,223,986 of Bureau-wide
costs (leave surcharges, unemployment insurance, workmen's
compensation, and nationwide Payments in Lieu of Taxes).  Actual
Washington Office FTE usage, when Bureau-wide leave surcharges are
taken out, is about 401. 

Source:  GAO's analysis of BLM's data. 

With total obligations of $192.9 million, the state office with the
largest amount of obligations was the Oregon State Office, which
covers Washington and Oregon.  The office's largest amount of
obligations included $75.6 million for Western Oregon Resources
Management, $13.8 million for Western Oregon Facilities Maintenance,
$11.9 million for Land Resources, and $11.0 million for Western
Oregon Construction and Acquisition.  These budget activities
accounted for about 61 percent of the office's FTEs. 

The Alaska State Office, which covers only Alaska, had total
obligations of $87.1 million.  The office's largest obligations
included $26.6 million for Realty and Ownership Management, $16.8
million for Wildland Fire Operations, $13.4 million for Wildland Fire
Preparedness, and $4.9 million for Energy and Minerals.  These budget
activities accounted for about 79 percent of the office's FTEs. 

The California State Office, which covers California and a small
portion of Nevada, had total obligations of $80.4 million.  The
office's largest amount of obligations included $9.8 million for
Recreation Management, $8 million for Land Resources, $6.8 million
for Resource Protection and Maintenance, and $6.7 million for
Wildland Fire Preparedness.  These budget activities accounted for
about 50 percent of the office's FTEs. 

Appendix III provides a detailed description of the 41 budget
activities under each of BLM's appropriations, permanent funds, and
trust funds.  Appendix IV shows a more detailed breakdown of
obligations for the 41 budget activities and FTEs by major BLM unit. 

--------------------
\3 On the basis of our discussions with BLM budget officials, we
agreed to display BLM's obligations and FTEs for fiscal year 1998 by
the 41 major budget activities. 

   RECEIPTS GENERATED
---------------------------------------------------------- Chapter 2:5

As part of its land management activities, BLM generates receipts
from its mineral leases and permits, sales of timber, sales of land
and materials, and grazing fees.  During fiscal year 1998, BLM
generated receipts totaling about $140 million as shown in table
2.4.\4

                               Table 2.4
                
                 BLM's Receipts by Source, Fiscal Year
                                  1998

                         (Dollars in thousands)

Source of receipt                                               Amount
----------------------------------------  ----------------------------
Sale of timber                                               $53,643.3
Mineral leases and permits                                    45,527.5
Grazing fees                                                  14,349.2
Sales of land and materials                                    9,046.3
Rights-of-way                                                  7,756.3
Recreation fees                                                6,107.2
Rent of land                                                   1,949.8
Fees and commissions                                           1,067.9
Other sources                                                    765.4
======================================================================
Total                                                       $140,212.9
----------------------------------------------------------------------
Source:  BLM's Public Land Statistics, 1998. 

The 11 western states and Alaska generated about 99 percent of the
receipts during fiscal year 1998.  BLM lands in Oregon generated the
largest amount of receipts at $57.6 million, of which, $52.6 million
was from timber sales, $1.5 million was from recreation fees, and
$1.2 million was from grazing fees.  BLM lands in Nevada generated
$10 million in receipts, including $3.4 million from the sales of
land and materials, $2.3 million from rights-of-way, and $2.2 million
from grazing fees.  BLM lands in Wyoming generated $4.8 million,
including $2.2 million from grazing fees, about $752,000 from the
sales of land and materials, and about $683,000 from rights-of-way. 
Appendix VII provides the amount of receipts generated by state. 

By law, BLM shares a portion of these receipts derived from the use,
extraction, or sale of natural resources from federal lands located
within the boundaries of certain states, counties, or territories. 
BLM also compensates counties by providing Payments in Lieu of Taxes
that would have been received by these jurisdictions if the federal
lands were privately owned.  In fiscal year 1998, BLM shared about
$72.4 million with states and local jurisdictions on the basis of the
receipts generated and an additional $118.8 million under the
Payments in Lieu of Taxes provisions.\5

--------------------
\4 In addition to the receipts collected by BLM, the Minerals
Management Service (within the Department of the Interior) collected
almost $1.1 billion in receipts generated from BLM lands during
fiscal year 1998. 

\5 For a further description of BLM's revenue-sharing programs, see
Land Management Agencies:  Revenue Sharing Payments to States and
Counties (GAO/RCED-98-261, Sept.  17, 1998). 

PROFILE OF THE FOREST SERVICE
============================================================ Chapter 3

The Forest Service, established in 1905 within the U.S.  Department
of Agriculture, manages about 192 million acres of public lands in
national forests and grasslandsï¿½about 9 percent of the nation's total
surface area and about 29 percent of all federal lands.  Forest
Service lands are located in 44 states, the Virgin Islands, and
Puerto Rico.  The Forest Service's workforce includes more than
34,000 permanent and temporary employees located in a total of 875
offices, which include headquarters, regional, forest, ranger
district, research, Job Corps Centers, and other offices in 45
states, Puerto Rico, and the District of Columbia.\1,2 Annually, the
Forest Service spends about $3 billion to operate and manage its
organization and lands and generates about $576 million in receipts
from its various operations. 

--------------------
\1 The Forest Service has a research office in Massachusetts but does
not have any national forests or grasslands in the state.

\2 Through an agreement with the Department of Labor, the Forest
Service operates Job Corps Centers, which provide basic education and
job training to disadvantaged youth between the ages of 16 and 24. 

   FOREST SERVICE-MANAGED LANDS
---------------------------------------------------------- Chapter 3:1

In fiscal year 1998, the Forest Service managed about 192 million
acres of land known as the National Forest Systemï¿½about 29 percent of
all federal landï¿½and the largest amount outside the Department of the
Interior.  Forest Service lands are located in 44 states, the Virgin
Islands, and Puerto Rico and are clearly concentrated in the West. 
However, the Forest Service manages more federal land in the East
than all other federal agencies combined.  The National Forest System
includes 155 national forests with 187.4 million acres, or 97.7
percent of the system; 20 national grasslands with 3.8 million acres,
or 2 percent of the system, and other minor specialized areas.  The
Forest Service manages its lands for a wide variety of resources and
uses, including timber, forage, recreation, wilderness areas, fish
and wildlife habitats, and areas with historical and heritage value. 
Figure 3.1 shows the acres of land managed by the Forest Service in
each state. 

   Figure 3.1:  Acres of Land
   Managed by the Forest Service
   in Each State

   (See figure in printed
   edition.)

Source:  GAO's presentation of the Forest Service's data. 

   ORGANIZATIONAL MISSION AND
   STRUCTURE
---------------------------------------------------------- Chapter 3:2

The Forest Service is responsible for the protection, management, and
use of its forests and grasslands for current and future generations. 
In this role, the Forest Service manages about one-twelfth of the
land in the United States with a multileveled organization in
cooperation with a variety of federal, state, and local
organizations.  With 85 research offices located throughout the
nation, the Forest Service conducts one of the largest forest and
rangeland research programs in the world.  In addition, through
technical and financial assistance, the Forest Service assists state
and private landowners to help them practice good stewardship and
improve the natural environment of cities and communities. 

      MISSION AND GOALS
-------------------------------------------------------- Chapter 3:2.1

The basic management goals for the National Forest System were
identified in the Organic Administration Act of 1897 and were further
articulated in the Multiple-Use Sustained-Yield Act of 1960 (16
U.S.C.  528-531).  The Act of 1960 directs national forest management
for the combination of uses that will best meet the needs of the
American people.  The Forest and Rangelands Renewable Resources
Planning Act of 1974, as amended by the National Forest Management
Act of 1976, also guides the management of the National Forest
System.  Together, these laws encourage foresight in using the
nation's renewable resources and establish long-range
strategic-planning processes for Forest Service management.  The
Forest Service's State and Private Forestry programs are authorized
by The Cooperative Forestry Assistance Act of 1978, and its Research
programs are authorized by The Forest and Rangeland Renewable
Resources Research Act of 1978. 

According to the Forest Service, its mission is to sustain the
health, productivity, and diversity of the land to meet the needs of
present and future generations.  It accomplishes its mission through
three major areas. 

  -- National Forest Systemï¿½provides for the protection, management,
     and utilization of national forests and grasslands for a wide
     variety of purposes and values.  Programs run the spectrum from
     the preservation of wilderness areas to intensive resource
     utilization for timber harvest or developed recreation areas.

  -- Forest and Rangeland Researchï¿½discovers, develops, and
     disseminates knowledge and technology to sustain the health,
     productivity, and diversity of all lands for present and future
     generations.  The Forest Service conducts and sponsors basic and
     applied scientific research. 

  -- State and Private Forestryï¿½enhances the health and sustainable
     management of the nation's urban and rural forests and related
     economies in partnership with federal, state, and local
     organizations.  The Forest Service's programs provide technical
     and cost-sharing assistance to help ensure the sound stewardship
     and use of state and private forest lands. 

Pursuant to its mission, the Forest Service's goals are to

  -- ensure sustainable ecosystems,

  -- provide multiple benefits for people within the capabilities of
     ecosystems, and

  -- ensure organizational effectiveness. 

In carrying out its goals, the Forest Service provides a wide variety
of products and services to the public, including healthy aquatic,
forested, and rangeland ecosystems; opportunities for recreation and
leisure activities; opportunities for a variety of commercial
activities such as the sales of timber and materials, grazing
allotments, and minerals; and the protection and restoration of
heritage resources. 

      ROLES AND ORGANIZATIONAL
      STRUCTURE
-------------------------------------------------------- Chapter 3:2.2

The Forest Service's headquarters organizational level has overall
responsibility for the agency and divides its operations into three
major organizations--the National Forest System, Research, and State
and Private Forestry.  The National Forest System is by far the
largest of the triad and is managed at three field levels--regional
offices, forest offices, and district offices.  Research operations
are managed at two field levels--research stations and field
laboratories.  The State and Private Forestry field management is
usually collocated at regional offices. 

The National Forest System includes 9 regional offices, 115 forest
offices, and 588 district offices while the Research operations have
7 research stations and 78 laboratories.\3 The Forest Service staffs
these offices with about 34,400 employees in various occupational
classifications.  Figure 3.2 shows the jurisdictions and locations of
the Forest Service's headquarters and regional offices.  Figure 3.3
shows the jurisdictions and locations of the Forest Service's
headquarters, research stations, and other research facilities. 

   Figure 3.2:  Forest Service's
   Regional Administrative
   Jurisdictions

   (See figure in printed
   edition.)

Source:  Forest Service. 

   Figure 3.3:  Forest Service's
   Research Administrative
   Jurisdictions

   (See figure in printed
   edition.)

Source:  Forest Service. 

The Forest Service uses a combination of line and functional staffs
in four organizational levels to carry out its programs.  With
delegations of authority and responsibility to the lowest level of
the organization, the Forest Service traditionally has been a very
decentralized organization.  According to the Forest Service, the
organizational structure was set up to provide for the clear and
efficient transmission of policy, information, and instructions from
the top to the bottom of the organization and for the flow of
information and feedback from the bottom to the top of the
organization.  Figure 3.4 presents the Forest Service's
organizational structure. 

   Figure 3.4:  Forest Service's
   Organizational Structure,
   Fiscal Year 1998

   (See figure in printed
   edition.)

Source:  Forest Service. 

--------------------
\3 By law, the National Forest System has 155 proclaimed national
forests; however, for administrative convenience, the Forest Service
often manages two to six forests as a single unit.  We use the term
forest offices to include national forests and administrative units. 

      ROLE OF THE HEADQUARTERS
      ORGANIZATION
-------------------------------------------------------- Chapter 3:2.3

At the headquarters level, the Chief, assisted by an Associate Chief
for Natural Resources and a Chief Operating Officer, provides the
Forest Service with overall direction.  Six Deputy Chiefs report to
the Chief through the Associate Chief or the Chief Operating Officer
and serve as the primary management link with Regional Foresters,
Station Directors, and the State and Private Area Directors on broad
operational and administrative matters.  These headquarters units are
responsible for

  -- managing relationships with national- and international-level
     interests, such as collaboration and cooperation with the U.S. 
     Department of Agriculture, tribal governments, other agencies,
     scientific communities, and the public;

  -- conducting national-level strategic planning and assisting in
     the formulation of long-range plans and programs, and planning
     and budgeting alternatives that reflect the objectives and
     priorities of the Forest Service;

  -- providing technical direction and assistance on unusually
     complex problems that are national in scope;

  -- determining and maintaining national standards for inventory,
     assessment, and monitoring and developing implementing
     instructions for field units;

  -- reviewing field programs to ensure acceptable levels or program
     quality, effectiveness, and accomplishment;

  -- providing leadership and expertise to the agency in the areas of
     financial systems management, nationwide policy management,
     quality assurance and compliance review, financial analysis,
     national financial operations management, the preparation of
     financial statements, financial management audits and carrying
     out agency business and human resource programs; and

  -- providing coordination and leadership for intergovernmental
     resource programs for technical and financial assistance to
     improve and protect state and privately owned forest resources
     and urban and community forestry. 

      ROLE OF THE REGIONAL OFFICES
-------------------------------------------------------- Chapter 3:2.4

The Forest Service has nine regional offices covering broad
geographic areas, usually several states.  According to the Forest
Service, the regional organization covers most of the same functions
as the headquarters office but allows a reasonable span of control
(10 to 20 forests in a region versus 155 servicewide) to carry out
regional functions.  The regions also carry out the Forest Service's
State and Private Forestry programs within their geographic area
except for the eastern region, where it is a separate office. 

According to the Forest Service, regional foresters and their staff
are the key links in gathering, analyzing, synthesizing, and
disseminating information between the forests and the headquarters
offices, work with State Foresters in developing information for
State and Private Forestry programs, and cooperating with Station
Directors in providing information for analysis.  Each region is
responsible for

  -- providing integrated regional leadership in partnership with
     stakeholders of the region;

  -- managing relationships with regional interests such as
     collaborating and cooperating with state governors and state
     agencies, tribal governments, bargaining units, other agencies,
     and partners;

  -- conducting regional strategic planning that ensures that forest
     plans contribute to regional and national goals;

  -- managing issues specific to the region or major ecosystems
     within or between regions;

  -- participating in the formulation of national policies, programs,
     and objectives by submitting information and advice to the
     Deputy Chiefs and to the Chief's Staff;

  -- translating national direction into regional policies, programs,
     and objectives;

  -- managing the regional budget process by preparing, presenting,
     and allocating the integrated regional budget; and

  -- providing subordinate units with technical and administrative
     assistance and oversight. 

      ROLE OF THE FOREST OFFICE
-------------------------------------------------------- Chapter 3:2.5

The National Forest System includes 155 national forests and 20
grasslands.  Forest offices administer ranger districts, national
grasslands, or national recreation areas, and generally, each forest
includes four to seven subunits.  The Forest Supervisor reports to
the Regional Forester or Deputy Regional Forester and is responsible
for

  -- managing ecosystems in context with regional plan(s),

  -- participating in regional planning and policies,

  -- meeting regionally allocated objectives and targets for
     accomplishing coordinated land-use planning and the production
     of goods and services from the National Forest System lands,

  -- delivering goods and services to the general public,

  -- allocating budgeted funds for individual activities,

  -- providing technical and administrative assistance and oversight
     of a forestwide nature,

  -- translating national and regional policies and programs into
     action, and

  -- managing relationships with county, state, and local parties and
     convening public input into the forest plan and projects. 

      ROLE OF THE RANGER DISTRICT
      OFFICES
-------------------------------------------------------- Chapter 3:2.6

Forest offices include 588 ranger districts, each with a staff of 10
to 100 people.  The districts vary in size from 50,000 to more than 1
million acres.  The Forest Service's on-the-ground program delivery,
including such functions as trail construction and maintenance,
operation of campgrounds and recreational facilities, and management
of vegetation and wildlife, occurs in the ranger districts. 

Each ranger district is responsible for implementing projects in
accordance with the objectives, standards, and guides in the forest
plan.  Ranger districts also

  -- participate in formulating the forest plan and forest policies,

  -- identify and resolve district issues,

  -- develop and maintain relationships with local entities,

  -- coordinate with adjacent landowners and land managers on common
     issues and activities, and

  -- promote land management education. 

      ROLE OF THE RESEARCH
      STATIONS
-------------------------------------------------------- Chapter 3:2.7

The Forest Service has six research stations, a Forest Products Lab,
and the International Institute of Tropical Forestry.  The research
stations conduct and oversee research in broad geographic areas and
coordinate and oversee research projects/work units/labs conducted at
8 to 20 sites within their geographic area.  The Station Director
reports to the Deputy Chief for Research and Development and is
responsible for

  -- coordinating the development of research programs with
     appropriate regions, the area, and other stations; formulating
     new natural resource and social research programs; and advising
     the Chief on new research needs and requirements;

  -- providing overall leadership in meeting the Forest Service's
     research objectives within the station's geographical area of
     responsibility or at the Forest Product Lab or International
     Institute of Tropical Forestry;\4

  -- establishing standards and systems to control and evaluate the
     quality and quantity of research accomplishments;

  -- translating national direction into station policies, programs,
     and objectives;

  -- releasing completed research results and promoting the prompt
     application of research findings through close liaison with key
     administrators in federal, state, and industrial forestry
     organizations;

  -- managing the research budget process by preparing, presenting,
     and allocating the integrated station budget; and

  -- providing subordinate units with technical and administrative
     assistance and oversight. 

--------------------
\4 While the International Institute of Tropical Forestry conducts
research, it reports to the Chief through the International Programs
Director. 

      ROLE OF RESEARCH WORK UNITS
-------------------------------------------------------- Chapter 3:2.8

Research work units are established to conduct basic or applied
research on a specific research topic and are headed by a Project
Leader, who has responsibility for

  -- planning the research program and activities within the unit and
     providing input into the station's research plans,

  -- preparing problem analyses and approving study plans in each
     problem analysis,

  -- conducting the approved research programs of the units,

  -- collaborating with other researchers from other organizations on
     joint research, and

  -- preparing manuscripts to document the results of research
     conducted by the unit. 

      ROLE OF STATE AND PRIVATE
      OFFICES
-------------------------------------------------------- Chapter 3:2.9

The Forest Service's State and Private Forestry offices are colocated
at the regional offices with the exception of the programs within the
Forest Service's eastern region which are managed by the Northeastern
Area Office located in Radnor, Pennsylvania.  State and Private
Forestry has basically two major activities, forest health management
and cooperative forestry.  Under forest health management, the
offices are responsible for managing forest insects and diseases and
protecting the health of forest ecosystems.  The program provides
national leadership and professional assistance for forest insect and
disease management in the protection and restoration of forest health
in national forests and lands managed by other federal agencies, as
well as in state and private lands.  Under cooperative forestry, the
offices are responsible for providing technical and financial
assistance to help rural and urban citizens, including private
landowners, care for forests and sustain the communities where they
live, work, and play. 

The Northeastern Area office and its counterparts at the regional
offices are responsible for coordinating all the State and Private
functional services to the states and private landowners.  The
offices provide coordination and leadership for intergovernmental
resource programs for technical and financial assistance to improve
and protect state and privately owned forest resources and urban and
community forestry.  The offices

  -- provide leadership, coordinated with regional offices and
     research stations, on state and private forestry matters;

  -- assist state and private forest landowners in the development,
     management, and administration of natural and human resources;

  -- accomplish the Forest Service's objectives associated with
     coordinated land-use planning and the production of goods and
     services from private and public lands through state and private
     cooperators;

  -- provide states and private cooperators with technical and
     financial assistance;

  -- monitor and evaluate the effectiveness of state, cooperative,
     and technical assistance programs; and

  -- participate in the formulation of national programs, budgets,
     and plans related to State and Private Forestry services. 

      TYPES OF OCCUPATIONS
------------------------------------------------------- Chapter 3:2.10

In fiscal year 1998, the Forest Service had employees in 245
different types of occupational classifications.  About 76 percent of
the jobs were classified as white collar jobs, and the remainder were
classified under the Federal Wage System for trades and labor
occupations in the federal government.  The Forest Service had a
total of 34,367 employees in the various job occupationsï¿½28,280
permanent employees and 6,087 temporary employees. 

A few occupational groups contained the majority of permanent
employee job series, including the following: 

  -- The Biological Sciences Group had 13,399, or 47 percent, of the
     permanent employees in various job series, including 6,472
     Forestry Technicians, 3,205 in Forestry, 990 in General
     Biological Science, 734 in Wildlife Biology, 361 in Rangeland
     Management, and 355 in Fishery Biology. 

  -- The General Administration, Clerical, and Office Services Group
     had 4,194 employees in various series, including Miscellaneous
     Administration, Clerks, Assistants, Secretaries, Computer
     Specialists, Clerks and Assistants, Program Management, and
     Support Services.

  -- Engineering and Architecture Group had 2,222 employees in
     various series, including Engineering Technician, Civil
     Engineering, Landscape Architecture, and Electronics Technician.

  -- The Physical Sciences Group had 1,049 employees in various
     series, including Hydrology and Hydrologic Technician,
     Cartography and Cartographic Technician, Land Surveying, and
     Geology. 

Appendix I provides a complete listing of all Forest Service
occupational groupings by job series and includes the number of
permanent and temporary employees as of the end of fiscal year 1998. 

   LOCATION, TYPE, AND NUMBER OF
   FOREST SERVICE OFFICES
---------------------------------------------------------- Chapter 3:3

At the end of fiscal year 1998, the Forest Service had 875 offices
located in 45 states, Puerto Rico, and the District of Columbia.  The
offices are concentrated in the West--about 67 percent of the offices
are in the 12 western states.  The national level has two offices at
the headquarters level and five technical centers.  The nine regional
offices and the field organization consist of 115 forest offices, 588
district ranger offices, 85 research offices, and 19 Job Corps
Centers.  The remaining 52 offices include nurseries, state and
private forestry offices, and other specialty offices.  Figure 3.5
shows the geographic dispersion of the Forest Service's offices. 

   Figure 3.5:  Geographic
   Dispersion of the Forest
   Service's Offices

   (See figure in printed
   edition.)

Source:  GAO's analysis of the Forest Service's data. 

At times, the Forest Service houses more than one organizational unit
in the same building and these cases were treated the same as
separate Forest Service offices within one Zip Code.  For example, if
a forest office and a ranger district office were located in the same
building, a dot within the circle is shown.  Appendix II provides
information on the number and type of offices by state. 

   FUNDING STRUCTURE, OBLIGATIONS,
   AND FULL-TIME EQUIVALENTS
---------------------------------------------------------- Chapter 3:4

In fiscal year 1998, the Forest Service's sources of funding included
eight appropriations and various permanent and trust funds.  Its
largest appropriation--the National Forest Systemï¿½had obligations of
$1.2 billion and 16,270 FTEs.  These obligations and FTEs were
charged to various budget activities, including general
administration, forestland management, recreation, infrastructure
management, wildlife and fisheries habitat management, and inventory
and monitoring.  Each of the appropriations and other funding sources
is further divided into budget line items for implementing the Forest
Service's programs.  The Forest Service's fiscal year 1998
obligations totaled about $3 billion and included FTEs of 39,719 in
the 41 major budget line items as shown in appendix VI.\5

However, for ease of presentation, we combined all budget line items
of less than $60 million and included them in Other Budget Line Items
in table 3.1. 

                               Table 3.1
                
                Forest Service's Obligations and FTEs by
                   Budget Line Item, Fiscal Year 1998

                         (Dollars in thousands)

                                                Obligation
Budget line item                                         s      FTEs\a
----------------------------------------------  ----------  ----------
Fire Presuppression and Fuels                   $290,010.5     4,602.7
Fire Suppression and Rehabilitation              241,517.9     3,763.0
General Administration                           239,448.5     2,805.5
Forestland Management                            231,772.9     4,027.1
Recreation Use                                   194,671.9     3,056.2
Forest and Rangeland Research                    182,251.2     2,352.8
Timber Salvage Sales Fund                        124,814.3     2,340.8
Human Resources                                  119,321.9     3,035.0
Knutson-Vandenberg Fund\b                        115,490.7     1,799.1
Land Acquisition                                  96,750.1       104.4
Infrastructure Management                         93,914.9     1,166.7
Cooperative Forestry                              90,094.6       303.5
Wildlife and Fisheries Habitat Management         80,557.1     1,205.1
Inventory and Monitoring                          76,717.7     1,036.4
Reimbursable Activities                           72,891.0     1,081.1
Forest Health Management                          72,781.6       353.7
Road Construction                                 70,466.8       871.7
Transfer Funds                                    68,993.4       293.4
Natural Disaster Funding                          67,232.6       591.6
Rangeland Management                              61,738.3       654.3
Other Budget Line Items\                         430,871.0     4,274.9
======================================================================
Total                                           $3,022,308    39,719.0
                                                        .9
----------------------------------------------------------------------
\a FTEs include both regular and overtime hours. 

\b A trust fund for reforestation, timber stand improvement, and
other renewable resources. 

Source:  GAO's analysis of the Forest Service's data. 

Excluding the obligations for the Washington State headquarters, the
western regions and research stations incurred about 74 percent of
the total obligations.  Table 3.2 shows the total obligations
incurred by the major units of the Forest Service. 

                               Table 3.2
                
                Forest Service's Obligations Incurred by
                     Major Units, Fiscal Year 1998

                         (Dollars in thousands)

                                                Obligation
Major Forest Service Unit                                s      FTEs\a
----------------------------------------------  ----------  ----------
Pacific Southwest Region                          $453,666     6,589.2
Southern Region                                    364,192     4,342.1
Pacific Northwest Region                           333,790     7,307.3
Washington Office Activities                       333,668     1,118.3
Northern Region                                    280,242     4,029.2
Intermountain Region                               250,134     3,360.5
Southwestern Region                                216,245     3,084.1
Research Stations                                  214,527     2,845.4
Eastern Region                                     179,817     2,505.9
Rocky Mountain Region                              177,484     2,413.9
Job Corps Centers                                   91,470     1,006.3
Northeastern Area State and Private Forestry        66,415       170.3
Alaska Region                                       60,659       946.5
======================================================================
Total                                           $3,022,309    39,719.0
----------------------------------------------------------------------
\a FTEs include both regular and overtime hours. 

Source:  GAO's analysis of the Forest Service's data. 

With total obligations of $453.7 million, the region with the largest
amount of obligations was the Pacific Southwest Region, which covers
the state of California.  The region's largest amount of obligations
included $101.6 million for Fire Presuppression and Fuels, $40.1
million for Forestland Management, $36.5 million for General
Administration, and $34.7 million for Recreation Use.  These budget
line items accounted for about 45 percent of the region's FTEs. 

The Southern Region, which covers 13 states in the southeastern
quadrant of the nation, had obligations of $364.2 million.  The
region's largest amount of obligations included $60.9 million for
Fire Suppression and Rehabilitation, $37.3 million for Forestland
Management, $24.9 million for General Administration, and $21.6
million for Recreation Use.  These budget line items accounted for
about 37 percent of the region's FTEs. 

The Pacific Northwest Region, which covers Washington and Oregon, had
obligations of $333.8 million.  The region's largest amount of
obligations included $41.6 million for Forestland Management, $34.7
million for Natural Disaster Funding, $29.5 million for the Timber
Salvage Sale Fund, and $21.5 for Fire Presuppression and Fuels. 
These budget line items accounted for about 41 percent of the
region's FTEs. 

Appendix V provides a detailed description of the 41 budget line
items under each of the Forest Service's appropriations, permanent
funds, and trust funds.  Appendix VI shows a more detailed breakdown
of the obligations for the 41 budget line items and FTEs by major
Forest Service unit. 

--------------------
\5 On the basis of our discussions with Forest Service budget
officials, we agreed to display the Forest Service's obligations and
FTEs for fiscal year 1998 by the 41 major budget line items. 

   RECEIPTS GENERATED
---------------------------------------------------------- Chapter 3:5

As part of its land management activities, the Forest Service
generates receipts from its various commercial activities on the
national forests and grasslands, including power, minerals, land
uses, timber, grazing, and recreation fees.  During fiscal year 1998,
the Forest Service generated receipts totaling about $576 million as
shown on table 3.3.\6

                               Table 3.3
                
                  Forest Service's Receipts by Source,
                            Fiscal Year 1998

                         (Dollars in thousands)

Source of receipt                                       Total receipts
--------------------------------------------------  ------------------
Timber                                                      $204,782.4
Timber Salvage Sales                                         136,551.2
Knutson-Vandenberg Deposits\a                                114,150.5
Timber Purchaser Road Credit                                  38,974.2
Recreation--Special Uses                                      37,349.4
Minerals                                                      20,330.1
Land Uses                                                      9,329.6
Grazing                                                        6,949.7
Recreation--User Fees                                          5,502.1
Power                                                          2,434.6
Quartz Crystals\b                                                 13.0
======================================================================
Total                                                       $576,366.8
----------------------------------------------------------------------
\a Portions of timber sales receipts are deposited in the
Knutson-Vandenberg Trust Fund, and the amounts are considered
receipts for the purposes of the 25-percent payment to the states. 
By law, the Forest Service is required to share 25 percent of the
receipts derived from the use, extraction, or sale of natural
resources from national forests and grasslands. 

\b Quartz crystals are minerals mined on the Quachita National
Forest. 

Source:  GAO's analysis of the Forest Service's data. 

Our analysis of receipt data showed that Forest Service lands in
Oregon generated the largest amount of receipts, at $118.1 million,
of which, $46.6 million was from the sale of timber, $37.3 million
was from timber salvage sales, and $24.3 million was from
Knutson-Vandenberg deposits.  Forest Service lands in California
generated $75.9 million in receipts, including $20.7 million from the
sale of timber, $17.4 million from timber salvage sales, and $16.9
million from Knutson-Vandenberg deposits.  Forest Service lands in
Idaho generated $49.9 million, including $26.5 million from timber
salvage sales, $11.4 million from the sale of timber, and $4.9
million from Knutson-Vandenberg deposits. 

By law, the Forest Service shares a portion of these receipts derived
from the use, extraction, or sale of natural resources from national
forests and grasslands.\7 During fiscal year 1998, the Forest Service
shared about $110.3 million with the states and counties and an
additional $124.8 million from the special spotted owl guarantee
appropriation.\8 Appendix VII provides the amount of receipts
generated by state. 

--------------------
\6 In addition to the receipts collected by the Forest Service, the
Minerals Management Service (within the Department of the Interior)
collected an additional $59 million in receipts generated from Forest
Service lands during fiscal year 1998. 

\7 For a further description of the Forest Service's revenue-sharing
programs, see Land Management Agencies:  Revenue Sharing Payments to
States and Counties (GAO/RCED-98-261, Sept.  17, 1998). 

\8 This special payment amount is for selected counties to compensate
them for the decline in timber harvests due to the protection of the
northern spotted owl's habitat. 

OBSERVATIONS ON THE PROFILES OF
THE FOREST SERVICE AND THE BUREAU
OF LAND MANAGEMENT
============================================================ Chapter 4

The organizational and demographic profiles of the Forest Service and
BLM are similar but differ in terms of magnitude and emphasis.  These
agencies, with practically identical missions, are responsible for
managing the same types of natural resources on about 70 percent of
all public lands, which represent about 21 percent of the nation's
total surface area.  When comparing the major components of the
agencies' profiles, the Forest Service is a much larger organization
in that it has 3 times the number of employees, 3 times the amount of
appropriations and obligations, more than 3 times the amount of
receipts generated, and over 4 times as many offices as BLM
throughout the country.  Conversely, in a comparison the total land
area managed by these agencies, the lands managed by BLM are
significantly larger than the lands managed by the Forest Service
because of the former's large holdings in Alaska.  However, the
amount of land managed within the contiguous 48 states is about the
same; most Forest Service lands are forests, and most BLM lands are
rangelands.  Regardless of the similarities and differences between
the agencies, the Forest Service and BLM have begun to increase the
number and types of shared initiatives they undertake in order to
improve customer service and efficiency. 

   SIMILARITIES
---------------------------------------------------------- Chapter 4:1

  -- Mission and Goals--BLM and the Forest Service are land
     management agencies with almost identical mission statements and
     many of the same goals.  By law, each agency's lands must be
     managed on a multiple-use and sustained-yield basis.  Many
     environmental and land-use laws apply to both agencies, such as
     the National Environmental Policy Act, the Clean Air Act, the
     Endangered Species Act, the Wild and Scenic Rivers Act, and the
     annual Interior and Related Agencies Appropriations Act, which
     funds both agencies.  However, each agency has specific laws
     dealing with its operations that do not apply to the other
     agency.

  -- Lands and Land Usesï¿½Although the Forest Service and BLM manage
     lands in 44 and 27 states, respectively, their lands are
     concentrated in the West and, to a large extent, are contiguous. 
     The Forest Service is the only major land manager outside the
     Department of the Interior.  Figure 4.1 shows the proximity of
     Forest Service and BLM lands. 

   Figure 4.1:  Forest Service and
   BLM Lands

   (See figure in printed
   edition.)

Source:  GAO's analysis of the U.S.  Geological Survey's data. 

Most of BLM's 264 million acres are in rangelands, whereas most of
the Forest Service's 192 million acres are forested.  Each agency
manages the lands for practically the same purposes, namely, timber,
grazing, recreation, minerals, wilderness, and fish and wildlife
habitat. 

  -- Types of Occupationsï¿½Between the two agencies, a total of 286
     job series, as defined by the Office of Personnel Management,
     are used.  In fiscal year 1998, the Forest Service, with more
     than 3 times as many permanent employees as BLM, had 28,280
     permanent employees compared with BLM's 8,910 permanent
     employees.  Of the 286 job series, 169, or 59 percent, were
     common to both agencies.  A large majority of the occupations
     were white collar occupations, and the majority of those
     employees were in the scientific disciplines relating to the
     management of natural resources.  The combined totals for the
     agencies' four largest occupational groups were 15,721 in
     Biological Sciences; 6,284 in General Administration, Clerical,
     and Office Services; 2,812 in Engineering and Architecture; and
     1,855 in the Physical Sciences. 

In both agencies, the largest four occupational groups for permanent
employees were the same and represented about 74 percent of the
Forest Service's permanent employees and about 65 percent of BLM's
permanent employees.  The Forest Service's largest number of
permanent employees were in two job series:  3,205 employees in the
Forestry job series and 6,472 employees in the Forestry Technician
job series, whereas BLM employed 505 persons in these categories. 
Under BLM's largest category of permanent employees, 507 employees
were in the Miscellaneous Administration and Program series and 509
were in the General Biological Science series, while the Forest
Service employed 192 and 990 in these categories, respectively. 

  -- Location, Type, and Number of Officesï¿½The Forest Service
     organization has a four-tier structure, that is, headquarters,
     regional offices, forest offices, and ranger district offices,
     which comprise about 80 percent of its offices.  In addition,
     the Forest Service has a large research organization and other
     specialty offices.  The BLM organization has a three-tier
     structure; that is, headquarters, state offices, and field
     offices, which comprise about 90 percent of BLM's offices.  In
     addition, BLM has national technical centers and other specialty
     offices. 

In fiscal year 1998, the Forest Service and BLM had 875 and 189
offices nationwide, respectively.  The Forest Service's offices were
located in 45 states, Puerto Rico, and the District of Columbia;
whereas, BLM's offices were located in 20 states and the District of
Columbia.  However, the preponderance of BLM's officesï¿½about 94
percent--and a clear concentration of the Forest Service's officesï¿½67
percentï¿½were located in the 11 western states and Alaska.  Figure 4.2
shows the locations of Forest Service and BLM offices. 

   Figure 4.2:  Location of the
   Forest Service's and BLM's
   Offices

   (See figure in printed
   edition.)

Note:  At times, the Forest Service and BLM house more than one
organizational unit in the same building.  In those cases, only a
single notation was made on the map. 

Source:  GAO's analysis of the Forest Service's and BLM's data. 

The Forest Service and BLM each had two or more units located at the
same location or Zip Code in 108 and 26 instances, respectively. 
Overall, both the Forest Service and BLM had one or more offices
located at the same location or Zip Code in 62 instances, nationwide. 

We also noted that two BLM state offices and two Forest Service
regions had identical geographic boundaries.  The Forest Service's
Pacific Northwest Region and BLM's Oregon State Office are
responsible for lands in Oregon and Washington.  Similarly, the
Forest Service's Pacific Southwest Region and BLM's California State
Office are responsible for lands in California.  Figures 4.3 and 4.4
show the similarities of the offices in the three states. 

   Figure 4.3:  Forest Service's
   and BLM's Offices in California

   (See figure in printed
   edition.)

Source:  GAO's analysis of the Forest Service's and BLM's data. 

Of the total of 133 offices in California, the Forest Service had 116
offices and BLM had 17 offices.  Overall, in California, the Forest
Service, and BLM had one or more offices located at the same location
or Zip Code in seven instances. 

   Figure 4.4:  Forest Service's
   and BLM's Offices in Oregon and
   Washington

   (See figure in printed
   edition.)

Source:  GAO's analysis of the Forest Service's and BLM's data. 

Of the total of 117 offices in Oregon, the Forest Service had 84
offices and BLM had 33 offices.  Overall, in Oregon, the Forest
Service and BLM had one or more offices located at the same location
or Zip Code in seven instances.  Of the total of 43 offices in
Washington, the Forest Service had 40 offices and BLM had 3 offices. 
Overall, in Washington, the Forest Service and BLM had one or more
offices located at the same location or Zip Code in one instance. 

  -- Funding Structure, Obligations, and Full-Time Equivalentsï¿½The
     Forest Service's and BLM's funding structure is similar, in
     that, both are funded through 8 to 10 annual appropriations,
     various permanent appropriations, and trust funds.  Both of
     these agencies are under the jurisdiction of the Interior and
     Related Agencies Appropriations Subcommittees in both Houses of
     Congress.  Total obligations for these agencies amounted to $4.2
     billion and included 52,395 FTEs.  The Forest Service had
     obligations of $3 billion and 39,719 FTEs, and BLM had
     obligations of $1.2 billion and 12,676 FTEs. 

The Forest Service and BLM further divide their appropriations and
other funding sources into budget line items and budget activities,
respectively.\1 Many of these agencies' budget categories are very
similar, if not identical.  Take, for example, the obligations
dealing with wildland fires.  In fiscal year 1998, each agency had an
appropriation entitled Wildland Fire Management and each had two
budget categories--one dealing with wildland fire preparedness and
the other dealing with wildland operations.  The combined obligations
for wildland fire management for each agency represented the largest
amount of obligations for a single purpose--$167.8 million for BLM
and $531.5 million for the Forest Service. 

The National Forest System appropriation is the Forest Service's
largest appropriation, and the Management of Lands and Resources
appropriation is BLM's largest appropriation.  In fiscal year 1998,
both appropriations had similar budget categories and funded the
similar types of activities, including Wildlife and Fisheries
Management; Recreation Management; Threatened and Endangered Species
Management; Rangeland Management; and Forestland Management. 

Overall, each agency had 41 major budget categories but not
necessarily the same categories.  On the basis of our review of the
agencies' descriptions of the tasks performed under each of the
budget categories, 18 of the 41 categories had similar, if not
identical, tasks or activities under each. 

  -- Receipts Generatedï¿½Both agencies generated receipts for the sale
     or use of the resources on their lands, and these receipts
     totaled $716.6 million in fiscal year 1998.  The Forest Service
     had $576.4 million and BLM had $140.2 million.  The receipts
     from the Forest Service's and BLM's lands in Oregon generated
     the largest amount, at $175.7 million--the Forest Service had
     $118.1 million and BLM had $57.6 million.  Overall, the receipts
     for the sale of timber and timber-related activities were the
     highest in both agencies--Forest Service had about $495 million
     and BLM had $53.6 million.  Finally, both agencies, by law,
     share a portion of these receipts derived from the use,
     extraction, or sale of natural resources from their lands with
     the states or counties surrounding the federal lands. 

--------------------
\1 These terms are synonymous budgetary terms, but for sake of
simplicity, we use the term budget categories. 

   DIFFERENCES BETWEEN BLM AND THE
   FOREST SERVICE
---------------------------------------------------------- Chapter 4:2

While a wide range of similarities exist between the two agencies,
unique budget categories, functions, and operations differentiated
these agencies in fiscal year 1998 as shown below: 

  -- The Forest Service had a forest and rangeland research
     organization with 85 research offices nationwide, obligations of
     $214.5 million, and 2,845 FTEs.  BLM did not have a research
     function. 

  -- The Forest Service had a nationwide state and private forestry
     organization with obligations of $163 million and 663 FTEs.  BLM
     did not have a similar organization. 

  -- The Forest Service operated 19 Job Corps Centers with
     obligations of $91.5 million and 1,006 FTEs; BLM did not. 

  -- BLM was responsible for administering the mineral resources on
     public lands managed by BLM, the Forest Service, and other
     surface management agencies. 

  -- BLM made Payments in Lieu of Taxes with obligations of $120
     million and 1 FTE for the entire government.  The Forest Service
     made payments to states and counties on its own behalf. 

  -- BLM had mining law administration operations with obligations of
     $37 million and FTEs of 489.  The Forest Service did not. 

  -- BLM had a helium fund and operations with obligations of $12.2
     million and FTEs of 142; the Forest Service did not. 

   SHARED INITIATIVES
---------------------------------------------------------- Chapter 4:3

Because of decreased agency budgets and decreased staffing through
governmentwide downsizing coupled with an increased emphasis on
improving customer service, BLM and the Forest Service have increased
the number and types of shared initiatives that they undertake. 
These initiatives range from small local efforts for improving
customer service to multi-million-dollar initiatives to fight fires
on state and federal lands.  The following briefly describes some of
the initiatives we identified. 

      JOINT FIREFIGHTING EFFORTS
-------------------------------------------------------- Chapter 4:3.1

The most notable of the joint initiatives relates to BLM's and the
Forest Service's efforts to prevent, control, and extinguish the
nation's wildland fires.  The Boise Interagency Fire Center,
established in 1965, evolved from separate efforts by BLM and the
Forest Service to improve fire and aviation support throughout much
of the West.  The efforts became successful enough for the National
Weather Service, the National Park Service, the Fish and Wildlife
Service and the Bureau of Indian Affairs to join the initial
organization created by BLM and the Forest Service. 

In a cooperative effort, these agencies share firefighting supplies,
equipment, and personnel to make the wildland firefighting tasks more
efficient and cost-effective.  Through the Boise Center and 11
regional coordinating centers, the federal efforts to extinguish
wildland fires are coordinated with local forest offices and BLM
field offices.\2

At a more local level, some Forest Service and BLM field units share
facilities, equipment, and human resources and work in a cooperative
effort to achieve the goal of containing wildland fires with a
minimum of damage and expense.  In some instances, employees from
both agencies staff dispatch centers, supply warehouses, or work for
a supervisor from either BLM or the Forest Service.  In other
instances, both BLM's and the Forest Service's wildland and fire
staff are colocated in the same building or in the same general
vicinity.  According to officials from both agencies, the cooperative
fire initiatives work extremely well and are considered some of the
best cooperative efforts in government. 

--------------------
\2 For a more detailed discussion of BLM's and the Forest Service's
efforts in prepositioning fire resources before the onset of the fire
season, see Federal Wildfire Activities:  Current Strategy and Issues
Needing Attention (GAO/RCED-99-233, to be issued in the summer of
1999). 

      SERVICE FIRST PROGRAM
-------------------------------------------------------- Chapter 4:3.2

Frequently, BLM and the Forest Service manage federal lands in the
same geographical location and may have offices within a few blocks
of each other in many small towns.  However, the two agencies often
carry out their jobs under different rules, use different
administrative processes, charge different user fees for similar
services, and take different approaches to customer service--all of
which may result in confusion for the customers and may waste
resources.  As a result, in March 1996, BLM and the Forest Service
announced the Service First program and initiated two pilot projects
in Colorado and Oregon as a means to provide customers with ï¿½one-stop
shoppingï¿½ under one roof.  These initiatives share resources,
interagency teams, and cooperative ventures and focus on the
ï¿½boundarylessï¿½ management of the lands. 

These pilot initiatives have three primary objectives: 

  -- Provide customers shared by BLM and the Forest Service with
     seamless service --for example, one-stop shopping for permits
     and services. 

  -- Reduce red tape by using the same procedures in both agencies. 

  -- Reduce costs by sharing resources (personnel, facilities, and
     skills) and eliminating business processes that do not add
     value. 

In addition to the two formal pilot projects, BLM identified 36
additional locations that could be potentially included in the
Service First initiative because the respective offices were in the
same town or were already colocated, or because plans were under way
for a future colocation between BLM and the Forest Service. 

      OTHER COOPERATIVE EFFORTS
-------------------------------------------------------- Chapter 4:3.3

According to BLM's and the Forest Service's budget justifications and
annual reports, the agencies undertake other initiatives of a
cooperative, shared, or reimbursable nature including the following: 

  -- Managing salmon, steelhead, and sea-run cutthroat trout in
     watersheds with both threatened or endangered-listed stocks and
     other stocks of anadromous fish on the 19,500 miles of spawning
     and rearing streams in Alaska, California, Idaho, Oregon, and
     Washington.  Also, the agencies are restoring the health of the
     entire riverine systems and the native fish species in areas
     where local communities have developed comprehensive watershed
     management plans. 

  -- Conducting examinations of abandoned mine lands in Alaska to
     quantify hazardous conditions, if any, and other damages for
     reclamation planning.  Reclaiming abandoned mines under an
     interagency initiative to coordinate the efforts of all land
     managers and owners to efficiently and comprehensively address
     entire watersheds rather than ï¿½spot treatingï¿½ individual sites. 

  -- Coordinating on fostering economic activity by facilitating
     energy and mineral development on National Forest System lands. 
     BLM issues the leases, and the Forest Service ensures the
     preparation of additional, site-specific, environmental
     documents and monitors and inspects the operations until final
     reclamation. 

  -- BLM's conducting of land surveys when requested by the Forest
     Service.  In fiscal year 1998, it was estimated that the BLM
     would perform 42 projects involving 880 miles for the Forest
     Service. 

  -- Coordinating and cooperating in implementing the President's
     Northwest Forest Plan.  In addition, the time-dependent and
     broad-level surveys, in addition to the monitoring needed to
     determine the effectiveness of actions throughout the
     24-million-acre region, requires extensive training and contract
     coordination between the two agencies.  Workers in the Forest
     Workforce Pilot Program also completed projects on both BLM and
     Forest Service lands. 

  -- Continuing cooperative seed orchard programs to reduce private
     seed orchards' operational costs. 

  -- BLM is working with a Forest Service research station to
     accurately identify the economic impact of recreation on
     communities adjacent to public lands. 

  -- Cosponsoring a course that focused on the design of recreation
     environments to ensure that the programs and facilities would be
     available to the widest range of customers, including those with
     disabilities.  Also, both agencies cosponsored workshops on
     collaborative stewardship.  In addition, BLM, the Forest
     Service, and other partners established the Partners for
     Resource Education to promote interagency collaboration for
     environmental education. 

  -- BLM, the Forest Service, and other partners joined together to
     develop trailheads and related recreational facilities in
     high-use areas of the Yellowstone Ecosystem.  They also hosted
     National Public Lands Day to encourage all Americans to pitch in
     to protect the nation's treasures while providing an opportunity
     for children, families, young adults, and seniors to participate
     in volunteer and educational activities linked to the public
     lands. 

  -- Coordinating land-use planning and management where agency
     boundaries meet or overlap, and providing for social and
     economic needs without undue harm to natural systems in
     southeastern Utah. 

  -- Accomplishing a series of actions to improve system coordination
     between the Forest Service and BLM, including
     telecommunications/network sharing, Internet firewalls and
     shared network access, E-mail connectivity, shared computer
     helpdesks, shared local area networks and colocation, data
     standards and applications, Forest Service and BLM contract
     sharing, and hardware/software licensing. 

FOREST SERVICE AND BUREAU OF LAND
MANAGEMENT EMPLOYEES BY JOB
SERIES, FISCAL YEAR 1998
=========================================================== Appendix I

                                                                     Forest        Forest
                                            BLM           BLM       Service       Service
Job series                            permanent     temporary     permanent     temporary
number        Series title            employees     employees     employees     employees
------------  -------------------  ------------  ------------  ------------  ------------
Miscellaneous Occupations
-----------------------------------------------------------------------------------------
0018          Safety and                     22             1            38             0
               Occupational
               Health Management
0019          Safety Technician               5             0             4             0
0020          Community Planning              3             0            13             2
0021          Community Planning              0             0             4             0
               Technician
0023          Outdoor Recreation            232             5           116             7
               Planning
0025          Park Ranger                    66           129             1             0
0028          Environmental                  90             2             0             0
               Protection
               Specialist
0029          Environmental                   1             0             0             0
               Protection
               Assistant
0080          Security                        2             0             0             0
               Administration
0085          Security Guard                  3             0             0             0
0090          Guide                           0             0            18            22
0099          General Student                11             2             0             2
               Trainee
=========================================================================================
              Total                         435           139           194            33

Social Science, Psychology, and Welfare
-----------------------------------------------------------------------------------------
0101          Social Science                  2             0            66             8
0102          Social Science Aide             4            28            47            91
               and Technician
0110          Economist                      19             0            43             5
0119          Economics Assistant             0             0             0             3
0142          Manpower                        0             0            36             0
               Development
0150          Geography                       6             0            19             6
0160          Civil Rights                    1             0             0             0
               Analysis
0170          History                         3             1             9             5
0180          Psychology                      0             0             4             0
0184          Sociology                       1             0             2             0
0185          Social Work                     0             0             2             0
0186          Social Services                 0             0           293            33
               Aide and Assistant
0187          Social Services                 0             0             2             0
0188          Recreation                      0             0            20             1
               Specialist
0189          Recreation Aide and             5            15            20             2
               Assistant
0190          General                         2             0             1             0
               Anthropology
0193          Archeology                    135             8           316            72
0199          Social Science                 11             0             2             8
               Student Trainee
=========================================================================================
              Total                         189            52           882           234

Personnel Management and Industrial Relations
-----------------------------------------------------------------------------------------
0201          Personnel                      61             0           282             1
               Management
0203          Personnel Clerical             52             1           332            14
               and Assistance
0212          Personnel Staffing              8             0            11             0
0221          Position                        5             0             7             0
               Classification
0223          Salary and Wage                 0             0             5             0
               Administration
0230          Employee Relations             10             0            36             0
0233          Labor Relations                 1             0             7             0
0235          Employee                        5             0            20             0
               Development
0260          Equal Employment               33             0            75             0
               Opportunity
0299          Personnel                       3             0             0             4
               Management Student
               Trainee
=========================================================================================
              Total                         178             1           775            19

General Administration, Clerical, and Office Services
-----------------------------------------------------------------------------------------
0301          Miscellaneous                 507            11           192             6
               Administration and
               Program
0303          Miscellaneous Clerk           217            53           600           132
               and Assistant
0304          Information                    17            11           220           161
               Receptionist
0305          Mail and File                  44             5            76            14
0318          Secretary                     195             8           219             9
0322          Clerk-Typist                    5             2            16            50
0326          Office Automation              61            29           370           249
               Clerical and
               Assistance
0332          Computer Operation             10             0            51             1
0334          Computer Specialist           376             6           634            28
0335          Computer Clerk and             68             8           336            97
               Assistant
0340          Program Management            241             4           520             0
0341          Administrative                 33             0           182             1
               Officer
0342          Support Services               26             0           442             2
               Administration
0343          Management and                126             4           152             2
               Program Analysis
0344          Management and                 39             3            17             0
               Program Clerical
               and Assistance
0346          Logistics                       2             0             0             0
               Management
0350          Equipment Operator             16             0            16             0
0351          Printing Clerical               1             0             1             0
0356          Data Transcriber                1             0             0             0
0357          Coding                          0             0             1             0
0360          Equal Opportunity               1             0             4             0
               Compliance
0361          Equal Opportunity               6             1             4             1
               Assistance
0382          Telephone Operating             0             0             2             0
0391          Telecommunications             77             0           138             3
0399          Administration and             21             5             1             7
               Office Support
               Student Trainee
=========================================================================================
              Total                       2,090           150         4,194           763

Biological Sciences
-----------------------------------------------------------------------------------------
0401          General Biological            509            20           990            38
               Science
0403          Microbiology                    0             0            17             2
0404          Biological Science             19           114           350           710
               Technician
0408          Ecology                        32             1           213            43
0413          Physiology                      0             0             0             1
0414          Entomology                      0             0           114             5
0415          Toxicology                      1             0             0             0
0430          Botany                         42            10           133            49
0434          Plant Pathology                 0             0            79             1
0435          Plant Physiology                0             0            33             5
0437          Horticulture                    2             0             7             1
0440          Genetics                        0             0            18             5
0454          Rangeland                     352             2           361            14
               Management
0455          Range Technician              451           412           107            79
0457          Soil Conservation               3             0             0             0
0460          Forestry                      190             2         3,205            85
0462          Forestry Technician           315           152         6,472         2,431
0470          Soil Science                   38             2           190            15
0480          General Fish and                2             0             3             0
               Wildlife
               Administration
0482          Fishery Biology                69             9           355            48
0486          Wildlife Biology              232            22           734           126
0487          Animal Science                  1             0             0             0
0499          Biological Science             58             1            18           121
               Student Trainee
=========================================================================================
              Total                       2,322           747        13,399         3,779

Accounting and Budget
-----------------------------------------------------------------------------------------
0501          Financial                       8             1           137             0
               Administration and
               Program
0503          Financial Clerical             27             2           100             0
               and Assistance
0505          Financial                       2             0            39             0
               Management
0510          Accounting                     20             1           133             5
0511          Auditing                        0             0            13             0
0525          Accounting                     46             1           273            15
               Technician
0530          Cash Processing                 3             0             0             0
0540          Voucher Examining              15             1            37             6
0544          Civil Pay                       2             1            43             5
0560          Budget Analysis                46             0           196             2
0561          Budget Clerical and            12             0            35             0
               Assistance
0599          Financial                       0             0             0             3
               Management Student
               Trainee
=========================================================================================
              Total                         181             7         1,006            36

Medical, Hospital, Dental, and Public Health
-----------------------------------------------------------------------------------------
0610          Nurse                           0             0            25             3
0620          Practical Nurse                 0             0             5             1
0640          Health Aide and                 0             0             2             0
               Technician
0688          Sanitarian                      0             0             0             1
0690          Industrial Hygiene              1             0             0             0
=========================================================================================
              Total                           1             0            32             5

Veterinary Medical Science
-----------------------------------------------------------------------------------------
0704          Animal Health                   1             0             0             0
               Technician
=========================================================================================
Total                                         1             0             0             0

Engineering and Architecture
-----------------------------------------------------------------------------------------
0801          General Engineering            12             0            80             1
0802          Engineering                   242            22           941            87
               Technician
0803          Safety Engineering              2             0             0             0
0807          Landscape                       7             0           210            12
               Architecture
0808          Architecture                    4             0            21             1
0809          Construction                    0             0            14             2
               Control
0810          Civil Engineering              79             0           681            12
0817          Surveying                      39           115            73            44
               Technician
0818          Engineering                     1             0             9             1
               Drafting
0819          Environmental                   4             2            20             0
               Engineering
0830          Mechanical                      2             0            21             2
               Engineering
0850          Electrical                      2             0             3             0
               Engineering
0855          Electronics                     2             0             9             0
               Engineering
0856          Electronics                    38             3           107             9
               Technician
0861          Aerospace                       0             0             1             0
               Engineering
0880          Mining Engineering             59             0             8             0
0881          Petroleum                      83             1             1             0
               Engineering
0890          Agricultural                    0             0             1             0
               Engineering
0893          Chemical                        0             0            11             2
               Engineering
0896          Industrial                      0             0             1             0
               Engineering
0899          Engineering and                14             2            10            14
               Architecture
               Student Trainee
=========================================================================================
              Total                         590           145         2,222           187

Legal and Kindred
-----------------------------------------------------------------------------------------
0905          General Attorney                1             2             0             0
0930          Hearings and                    1             0             0             0
               Appeals
0950          Paralegal                       5             2            14             0
               Specialist
0962          Contact                        79            18             0             0
               Representative
0963          Legal Instruments              64             2            54             1
               Examining
0965          Land Law Examining            243             1            22             0
0986          Legal Clerical and            100             7            11             0
               Assistance
0990          General Claims                  0             0            13             0
               Examining
0998          Claims Clerical                 0             0             2             0
0999          Legal Occupations               2             0             0             0
               Student Trainee
=========================================================================================
              Total                         495            32           116             1

Information and Arts
-----------------------------------------------------------------------------------------
1001          General Arts and               27             5           397           103
               Information
1010          Exhibits Specialist             0             0             3             0
1015          Museum Curator                  2             0             2             0
1016          Museum Specialist               2             0             2             1
               and Technician
1020          Illustrating                    1             0             4             0
1035          Public Affairs                 80             1           252            11
1060          Photography                     4             0            12             1
1071          Audiovisual                    14             0            11             2
               Production
1082          Writing and Editing            29             4            36             9
1083          Technical Writing               3             5            24             5
               and Editing
1084          Visual Information             22             0            49             5
1087          Editorial                       7             3            28             6
               Assistance
1099          Information and                 2             0             0             2
               Arts Student
               Trainee
=========================================================================================
              Total                         193            18           820           145

Business and Industry
-----------------------------------------------------------------------------------------
1101          General Business               38             6           510            21
               and Information
1102          Contracting                    79             0           225             1
1104          Property Disposal               2             2             4             0
1105          Purchasing                     52             0           279             2
1106          Procurement                    10             1           103             0
               Clerical and
               Technician
1107          Property Disposal               2             0             1             0
               Clerical and
               Technician
1170          Realty                        290             4           141             1
1171          Appraising                     33             1            33             2
1176          Building Management             2             0             0             0
1199          Business and                    4             0             0             1
               Industry Student
               Trainee
=========================================================================================
              Total                         512            14         1,296            28

Copyright, Patent, and Trademark
-----------------------------------------------------------------------------------------
1221          Patent Advisor                  0             0             2             3
=========================================================================================
              Total                           0             0             2             3

Physical Sciences
-----------------------------------------------------------------------------------------
1301          General Physical               66             3            73             5
               Science
1310          Physics                         0             0             1             1
1311          Physical Science               13            15            31            35
               Technician
1313          Geophysics                      2             0             0             0
1315          Hydrology                      52             3           288            27
1316          Hydrologic                      1            18            69            92
               Technician
1320          Chemistry                       2             0            51             4
1340          Meteorology                     0             0            21             0
1341          Meteorological                  0             0             2            12
               Technician
1350          Geology                       244             9           117            19
1370          Cartography                    45             2            69             0
1371          Cartographic                  106            17           155            57
               Technician
1372          Geodesy                         8             0             0             0
1373          Land Surveying                254             7           137             1
1380          Forest Products                 0             0            33             1
               Technology
1399          Physical Science               13             1             2             9
               Student Trainee
=========================================================================================
              Total                         806            75         1,049           263

Library and Archives
-----------------------------------------------------------------------------------------
1410          Librarian                       4             0             7             1
1411          Library Technician              7             0            12             6
1412          Technical                       1             0             9             1
               Information
               Services
1421          Archives Technician             1             0             0             0
1499          Library and                     1             1             0             0
               Archives Student
               Trainee
=========================================================================================
              Total                          14             1            28             8

Mathematics and Statistics
-----------------------------------------------------------------------------------------
1515          Operations Research             1             0            35             0
1520          Mathematics                     0             0             5             1
1529          Mathematical                    0             0            30             2
               Statistician
1530          Statistician                    0             0            12             3
1531          Statistical                     3             2             9             2
               Assistant
1550          Computer Science                0             0             4             0
=========================================================================================
              Total                         4 2                          95             8

Equipment, Facilities, and Services
-----------------------------------------------------------------------------------------
1601          General Facilities              5             0             2             0
               and Equipment
1640          Facility Management             1             0            13             0
1654          Printing Management            12             0             8             0
1670          Equipment                      11             0            27             1
               Specialist
=========================================================================================
              Total                          29             0            50             1

Education
-----------------------------------------------------------------------------------------
1701          General Education               5             0             7             0
               and Training
1702          Education and                  11             1            31            16
               Training
               Technician
1710          Education and                   0             0           114            10
               Vocational
               Training
1712          Training                       11             0            19             2
               Instruction
1740          Education Services              0             0            30             1
1750          Instructional                   7             0             0             0
               Systems
1799          Education Student               0             0             0             1
               Trainee
=========================================================================================
              Total                          34             1           201            30

Investigation
-----------------------------------------------------------------------------------------
1801          General Inspection,           161             0             6             2
               Investigation, and
               Compliance
1802          Compliance                     32             2           476             2
               Inspection and
               Support
1811          Criminal                       54             0           138             0
               Investigating
1825          Aviation Safety                 0             0             1             0
1899          Investigation                  10             0             0             2
               Student Trainee
=========================================================================================
              Total                         257             2           621             6

Quality Assurance, Inspection, and Grading
-----------------------------------------------------------------------------------------
1910          Quality Assurance               9             0             0             0
=========================================================================================
              Total                           9             0             0             0

Supply
-----------------------------------------------------------------------------------------
2001          General Supply                 18             0             9             0
2003          Supply Program                  2             0             9             0
               Management
2005          Supply Clerical and            43             4            77             6
               Technician
2010          Inventory                       3             0             0             0
               Management
2099          Supply Student                  0             0             0             1
               Trainee
=========================================================================================
              Total                          66             4            95             7

Transportation
-----------------------------------------------------------------------------------------
2101          Transportation                 17             0            33             0
               Specialist
2102          Transportation                  3             0            15             0
               Clerk and
               Assistant
2130          Traffic Management              1             0             0             0
2150          Transportation                 10             0            47             0
               Operations
2151          Dispatching                     0             0             8             1
2181          Aircraft Operation              9             0            65             0
=========================================================================================
              Total                          40             0           168             1

Wire Communications, Equipment Installation, and Maintenance
-----------------------------------------------------------------------------------------
2502          Telecommunications              0             0             1             0
               Mechanic
=========================================================================================
              Total                           0             0             1             0

Electronic Equipment Installation and Maintenance
-----------------------------------------------------------------------------------------
2604          Electronic Mechanic             7             1             3             0
2606          Electronic                      4             0             0             0
               Industrial
               Controls Mechanic
2608          Electronic Digital              3             0             0             0
               Computer Mechanic
2610          Electronic                      2             0             0             0
               Integrated Systems
               Mechanic
=========================================================================================
              Total                          16             1             3             0

Electrical Installation and Maintenance
-----------------------------------------------------------------------------------------
2805          Electrician                     1             1            19             0
=========================================================================================
              Total                           1             1            19             0

Instrument Work
-----------------------------------------------------------------------------------------
3314          Instrument Making               0             0             1             0
3359          Instrument Mechanic             0             1             0             0
=========================================================================================
              Total                           0             1             1             0

Machine Tool Work
-----------------------------------------------------------------------------------------
3414          Machining                       0             0             4             0
=========================================================================================
              Total                           0             0             4             0

General Services and Support Work
-----------------------------------------------------------------------------------------
3501          Miscellaneous                   0             0             0             1
               General Services
               and Support
3502          Laboring                        3            16            41           345
3506          Summer Aid/Student              0             0             0             1
               Aid
3511          Laboratory Working              0             0             2             0
3566          Custodial Working               0             0             7            12
              Total                           3            16            50           359

Structural and Finishing Work
-----------------------------------------------------------------------------------------
3602          Cement Finishing                0             0             1             0
3603          Masonry                         1             1             4             0
3653          Asphalt Working                 0             0             1             0
=========================================================================================
              Total                           1             1             6             0

Metal Processing
-----------------------------------------------------------------------------------------
3703          Welding                         2             0            15             0
=========================================================================================
              Total                           2             0            15             0

Painting and Paper
-----------------------------------------------------------------------------------------
4102          Painting                        0             1             1             0
4104          Sign Painting                   4             0             3             0
=========================================================================================
              Total                           4             1             4             0

Plumbing and Pipefitting
-----------------------------------------------------------------------------------------
4204          Pipefitting                     0             0             1             0
=========================================================================================
              Total                           0             0             1             0

Printing
-----------------------------------------------------------------------------------------
4401          Miscellaneous                   4             0             1             0
4402          Bindery Working                 3             0             0             0
4414          Offset Photography              2             0             2             0
4417          Offset Press                    0             0             5             0
               Operating
=========================================================================================
              Total                           9             0             8             0

Wood Work
-----------------------------------------------------------------------------------------
4604          Wood Working                    0             0             2             0
4605          Wood Crafting                   0             0             4             0
4607          Carpentry                       6             1            21             4
=========================================================================================
              Total                           6             1            27             4

General Maintenance and Operation Work
-----------------------------------------------------------------------------------------
4701          Miscellaneous                   0             0             4             0
               General
               Maintenance
4714          Model Making                    0             0             1             0
4737          General Equipment               0             0             2             0
               Mechanic
4742          Utility Systems                 2             0             4             1
               Repairing-
               Operating
4745          Research Laboratory             0             0             2             0
               Mechanic
4749          Maintenance                    99            35           180            28
               Mechanic
=========================================================================================
              Total                         101            35           193            29

Plant and Animal Work
-----------------------------------------------------------------------------------------
5001          Fire Retardant                  3             0            12             5
               Mixer Operating
5003          Gardening                       8             1            17             2
5026          Pest Controlling                0             0             1             0
5035          Livestock Ranching/            11             8             0             0
               Wrangling
5042          Tree Trimming and               0             0             3             0
               Removing
5048          Animal Caretaking               2             0             2             2
5201          Miscellaneous                   0             0             2             1
               Occupations
=========================================================================================
              Total                          24             9            37            10

Industrial Equipment Maintenance
-----------------------------------------------------------------------------------------
5306          Air Conditioning                0             0             4             0
               Equipment Mechanic
5352          Industrial                      2             2             0             0
               Equipment Mechanic
5378          Powered Support                 0             2             0             0
               Systems Mechanic
=========================================================================================
              Total                           2             4             4             0

Industrial Equipment Operating
-----------------------------------------------------------------------------------------
5402          Boiler Plant                    0             2             1             0
               Operating
5406          Utility Systems                 0             0             8             0
               Operating
5408          Wastewater                      0             0             5             0
               Treatment Plant
               Operating
5409          Water Treatment                 0             0             8             1
               Plant Operating
5413          Fuel Distribution               3             4             0             0
               System Operating
5433          Gas Generating                  4             8             0             0
               Plant Operating
=========================================================================================
              Total                           7            14            22             1

Transportation/Mobile Equipment Operation
-----------------------------------------------------------------------------------------
5701          Miscellaneous                   0             0             0             1
               Transportation
               Equipment
               Operating
5703          Motor Vehicle                  12            12            26            15
               Operating
5704          Fork Lift Operating             0             0             3             3
5705          Tractor Operating               3             1            31             9
5716          Engineering                   162            37           344            64
               Equipment
               Operating
5729          Drill Rig Operating             0             0             0             1
5786          Small Craft                     0             0             3             1
               Operating
=========================================================================================
              Total                         177            50           407            94

Transportation/Mobile Equipment Maintenance
-----------------------------------------------------------------------------------------
5801          Miscellaneous                   0             0             2             0
               Transportation
               Maintenance
5803          Heavy Mobile                   10             4             7             0
               Equipment Mechanic
5806          Mobile Equipment                1             0             1             0
               Servicing
5823          Automotive Mechanic             6             0            96             7
=========================================================================================
              Total                          17             4           106             7

Ammunition, Explosives, and Toxic Materials Work
-----------------------------------------------------------------------------------------
6502          Explosives                      0             0             1             0
               Operating
=========================================================================================
              Total                           0             0             1             0

Warehousing and Stock Handling
-----------------------------------------------------------------------------------------
6904          Tools and Parts                 0             0             2             0
               Attending
6907          Materials Handler              79            14            45             9
6968          Aircraft Freight                2             0             0             0
               Loading
=========================================================================================
              Total                          81            14            47             9

Packing and Processing
-----------------------------------------------------------------------------------------
7002          Packing                         0             0             2             0
=========================================================================================
              Total                           0             0             2             0

Food Preparation and Serving
-----------------------------------------------------------------------------------------
7404          Cooking                         2             0            71            17
=========================================================================================
              Total                           2             0            71            17

Engine Overhaul
-----------------------------------------------------------------------------------------
8610          Small Engine                    4             0             5             0
               Mechanic
=========================================================================================
              Total                           4             0             5             0

Aircraft Overhaul
-----------------------------------------------------------------------------------------
8852          Aircraft Mechanic               1             0             1             0
8862          Aircraft Attending              6             4             0             0
=========================================================================================
              Total                           7             4             1             0
              Grand total                 8,910         1,546        28,280         6,087
-----------------------------------------------------------------------------------------
Notes:  Series 0345 was abolished and rolled into series 0343 in
August 1990.  Series 0393 was abolished and rolled into series 0391
in March 1990.  Series 3506 was abolished and permanently removed
from the job series in December 1994. 

Source:  Forest Service and BLM. 

TYPES OF FOREST SERVICE AND BUREAU
OF LAND MANAGEMENT OFFICES BY
STATE
========================================================== Appendix II

States/                                                                            Ranger                  Resource                    National
organizatio  Headquarters      Regional       State      Forest    District      district       Field          area      Research     technical     Job corps       Other
n                 offices       offices     offices   offices\a     offices     offices\b     offices       offices     offices\c       centers       centers     offices       Total
-----------  ------------  ------------  ----------  ----------  ----------  ------------  ----------  ------------  ------------  ------------  ------------  ----------  ----------
Alabama
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Forest                  0             0           0           1           0             6           0             0             2             0             0           0           9
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0

Alaska
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Forest                  0             1           0           1           0            16           0             0             2             0             0           4          24
 Service
BLM                     0             0           1           0           0             0           6             0             0             0             0           3          10

Arizona
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Forest                  1             0           0           6           0            28           0             0             1             0             0           1          37
 Service
BLM                     0             0           1           0           0             0           6             0             0             1             0           1           9

Arkansas
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Forest                  0             0           0           2           0            16           0             0             1             0             2           0          21
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
California
Forest                  1             1           0          17           0            74           0             0             9             0             0          14         116
 Service
BLM                     0             0           1           0           1             0          15             0             0             0             0           0          17
Colorado
Forest                  0             1           0           6           0            43           0             0             2             0             1           2          55
 Service
BLM                     0             0           1           0           4             0           2             9             0             4             0           2          22
Connecticut
Forest                  0             0           0           0           0             0           0             0             1             0             0           0           1
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0

District of Columbia
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Forest                  1             0           0           0           0             0           0             0             0             0             0           0           1
 Service
BLM                     2             0           0           0           0             0           0             0             0             0             0           0           2
Florida
Forest                  0             0           0           1           0             5           0             0             0             0             0           0           6
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Georgia
Forest                  0             1           0           1           0             7           0             0             1             0             0           0          10
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Hawaii
Forest                  0             0           0           0           0             0           0             0             3             0             0           0           3
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Idaho
Forest                  1             0           0           9           0            47           0             0             2             0             0           3          62
 Service
BLM                     0             0           1           0           1             0           5            13             0             1             0           0          21
Illinois
Forest                  0             0           0           1           0             5           0             0             1             0             1           0           8
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Indiana
Forest                  0             0           0           1           0             2           0             0             2             0             0           0           5
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Kansas
Forest                  0             0           0           0           0             1           0             0             0             0             0           0           1
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Kentucky
Forest                  0             0           0           1           0             6           0             0             0             0             2           0           9
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Louisiana
Forest                  0             0           0           1           0             5           0             0             1             0             0           1           8
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Maine
Forest                  0             0           0           0           0             1           0             0             1             0             0           0           2
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Massachuset
 ts
Forest                  0             0           0           0           0             0           0             0             1             0             0           0           1
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Michigan
Forest                  0             0           0           3           0            18           0             0             3             0             0           1          25
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Minnesota
Forest                  0             0           0           2           0             8           0             0             3             0             0           2          15
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Mississippi
Forest                  0             0           0           1           0             7           0             0             5             0             0           0          13
 Service
BLM                     0             0           0           0           0             0           1             0             0             0             0           0           1
Missouri
Forest                  0             0           0           1           0             7           0             0             3             0             0           0          11
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           1           1
Montana
Forest                  1             1           0           9           0            39           0             0             4             0             2           2          58
 Service
BLM                     0             0           1           0           3             0           0             7             0             0             0           0          11
North
 Carolina
Forest                  0             0           0           1           0            10           0             0             5             0             2           0          18
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
North
 Dakota
Forest                  0             0           0           0           0             3           0             0             0             0             0           0           3
 Service
BLM                     0             0           0           0           1             0           0             0             0             0             0           0           1
Nebraska
Forest                  0             0           0           1           0             2           0             0             1             0             1           1           6
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Nevada
Forest                  0             0           0           1           0             8           0             0             1             0             0           0          10
 Service
BLM                     0             0           1           0           0             0           8             0             0             0             0           0           9
New
 Hampshire
Forest                  0             0           0           1           0             4           0             0             1             0             0           1           7
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
New Mexico
Forest                  0             1           0           5           0            25           0             0             1             0             0           0          32
 Service
BLM                     0             0           1           0           0             0          11             0             0             0             0           0          12
New York
Forest                  0             0           0           1           0             0           0             0             1             0             0           0           2
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Ohio
Forest                  0             0           0           1           0             3           0             0             1             0             0           0           5
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Oklahoma
Forest                  0             0           0           0           0             4           0             0             0             0             0           0           4
 Service
BLM                     0             0           0           0           0             0           2             0             0             0             0           0           2
Oregon
Forest                  0             1           0          13           0            55           0             0             4             0             3           8          84
 Service
BLM                     0             0           1           0           9             0          23             0             0             0             0           0          33
Pennsylvani
 a
Forest                  0             0           0           1           0             3           0             0             2             0             0           2           8
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Puerto Rico
Forest                  0             0           0           1           0             0           0             0             0             0             0           1           2
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
South
 Carolina
Forest                  0             0           0           1           0             6           0             0             2             0             0           1          10
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
South
 Dakota
Forest                  0             0           0           1           0            10           0             0             1             0             1           0          13
 Service
BLM                     0             0           0           0           0             0           0             1             0             0             0           0           1
Tennessee
Forest                  0             0           0           1           0             6           0             0             0             0             1           1           9
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Texas
Forest                  0             0           0           1           0             5           0             0             1             0             0           0           7
 Service
BLM                     0             0           0           0           0             0           1             0             0             1             0           0           2
Utah
Forest                  1             1           0           6           0            24           0             0             4             0             0           1          37
 Service
BLM                     0             0           1           0           3             0           3             8             0             0             0           2          17
Vermont
Forest                  0             0           0           1           0             3           0             0             1             0             0           0           5
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Virginia
Forest                  1             0           0           1           0            11           0             0             1             0             1           2          17
 Service
BLM                     0             0           1           0           0             0           0             0             0             0             0           0           1
Washington
Forest                  0             0           0           6           0            27           0             0             4             0             1           2          40
 Service
BLM                     0             0           0           0           1             0           2             0             0             0             0           0           3
West
 Virginia
Forest                  0             0           0           1           0             6           0             0             3             0             0           1          11
 Service
BLM                     0             0           0           0           0             0           0             0             0             0             0           0           0
Wisconsin
Forest                  0             1           0           2           0             9           0             0             2             0             1           1          16
 Service
BLM                     0             0           0           0           0             0           1             0             0             0             0           0           1
Wyoming
Forest                  0             0           0           4           0            23           0             0             1             0             0           0          28
 Service
BLM                     0             0           1           0           4             0           6             0             0             0             0           2          13
=====================================================================================================================================================================================
Forest                  7             9           0         115           0           588           0             0            85             0            19          52         875
 Service
 total
BLM total               2             0          12           0          27             0          92            38             0             7             0          11         189
Grand total             9             9          12         115          27           588          92            38            85             7            19          63       1,064
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
\a The Forest Service has 155 proclaimed national forests.  However,
since some of the forests are small, the Forest Service combines some
of the forests into administrative units for accounting purposes. 

\b District offices include work centers and stations and some
proclaimed national forests and grasslands that have been designated
as districts for administrative purposes. 

\c Research offices include stations, laboratories, and specialized
research centers and institutes. 

Source:  GAO's analysis of the Forest Service's and BLM's data. 

BUREAU OF LAND MANAGEMENT'S
ACTIVITIES
========================================================= Appendix III

Budget activity                              Activities include
-------------------------------------------  --------------------------------------------
Management of Lands and Resources
-----------------------------------------------------------------------------------------
Land Resources                               Providing for the integrated management of
                                             certain public land renewable resources and
                                             cultural resources including soil, water,
                                             and air; rangelands; forests; riparian lands
                                             or wetlands; cultural resources; and wild
                                             horses and burros. Major activities include
                                             establishing ecological site baseline data;
                                             identifying and quantifying the uses of
                                             water resources; monitoring watersheds and
                                             airsheds to determine if intended objectives
                                             are met; issuing grazing permits and
                                             leasings; evaluating the condition, trend,
                                             and health of wetlands and aquatic areas;
                                             promoting the public's awareness and
                                             appreciation of archaeological, historical,
                                             paleontological, and environmental resources
                                             through interpretive and educational
                                             programs; and maintaining preparation
                                             facilities for wild horses and burros prior
                                             to adoption.

Wildlife and Fisheries                       Managing, restoring, and protecting fish and
                                             wildlife habitat on public lands. Major
                                             activities include emphasizing partnership
                                             efforts with other agencies and private
                                             partners to manage fish and wildlife
                                             habitats, implementing visitor enhancement
                                             activities at wildlife-viewing sites through
                                             improved directional and interpretive signs,
                                             conducting project work, and developing
                                             site-specific plans.

Threatened and Endangered Species            Working collaboratively with other federal,
                                             state, and local agencies and private
                                             landowners to develop conservation
                                             strategies and agreements for declining
                                             plant and animal populations and
                                             implementing priority protection and
                                             restoration actions for special habitats in
                                             designated areas. Major activities include
                                             monitoring population trends and habitat
                                             conditions to determine if management
                                             prescriptions are promoting species
                                             recovery, and inventorying threatened and
                                             endangered species--including proposed and
                                             candidate species--to develop and implement
                                             conservation strategies and recovery plans.

Recreation Management                        Providing resource-related recreational
                                             activities and quality visitor services
                                             while minimizing natural and cultural
                                             resource damage and ensuring that the public
                                             receives fair market value for any
                                             commercial ventures from public lands. Major
                                             activities include preparing wilderness
                                             management plans, monitoring resource
                                             conditions and trends on these lands, and
                                             conducting studies during land and resource
                                             management planning revisions; identifying
                                             boundaries, setting survey monuments,
                                             installing signs, and updating public land
                                             records; developing brochures, maps, and
                                             media coverage about new wilderness areas;
                                             providing visitor information and quality
                                             services, working with the state and local
                                             tourism industry, and seeking cost recovery
                                             for recreational services provided by the
                                             Bureau of Land Management (BLM); issuing
                                             permits for the use of river systems,
                                             trails, hunting, backpacking, competitive
                                             events, and individual recreation use;
                                             identifying and mapping trails and providing
                                             visitor information; and maintaining sites
                                             and facilities in fee areas.

Energy and Minerals                          Providing mineral resources from public
                                             lands while minimizing natural resource
                                             damage and ensuring a fair return for any
                                             minerals produced from public lands. Major
                                             activities include making land available for
                                             oil, gas, and coal production by processing
                                             and issuing permits and leases; conducting
                                             on-site inspections of permittees and
                                             lessees; screening nearly all onshore wells
                                             drilled to determine whether a potential
                                             drainage situation exists; performing
                                             inspection and enforcement activities for
                                             both producing and nonproducing coal leases;
                                             and assessing Alaskan mineral resources on
                                             federal lands to identify land use
                                             management alternatives and policy options.

Realty and Ownership Management              Providing lands, realty, and cadastral
                                             survey products and services involving
                                             public lands; maintaining current land title
                                             records; and managing and processing realty
                                             and right-of-way authorizations on public
                                             lands. Major activities include recording,
                                             automating, and preserving land survey
                                             records; maintaining the Geographic
                                             Coordinate Data Base; and providing land
                                             managers with cadastral surveys, including
                                             the locating and marking of boundaries;
                                             responding to public inquiries about
                                             surveys, public land status, use, and
                                             availability; issuing right-of-way grants to
                                             authorize the construction, operation. and
                                             maintenance of a wide range of projects on
                                             public lands; monitoring land use
                                             authorizations and conveyances to maintain
                                             compliance with terms and conditions; and
                                             maintaining a program to prevent or detect
                                             the unauthorized use of public lands.

Communication Sites                          Managing communication sites for both
                                             commercial and private users under the
                                             right-of-way authorization. Major activities
                                             include processing authorizations and
                                             conducting the subsequent management of the
                                             communication site use of public lands.

Resource Protection and Maintenance          Protecting the health and safety of users or
                                             activities on public lands (1) through the
                                             maintenance of buildings and transportation
                                             and recreation facilities and (2) from
                                             criminal or other unlawful activities. Major
                                             activities include preparing, approving, and
                                             revising land management plans; maintaining
                                             and/or improving buildings, water systems,
                                             recreational facilities, and transportation
                                             systems on public lands; conducting project
                                             surveys, designs, or other engineering or
                                             architectural services; protecting resources
                                             from theft or degradation; investigating
                                             crimes occurring on or relating to public
                                             lands; reducing the cultivation,
                                             manufacture, distribution, and possession of
                                             illegal drugs on public lands; and
                                             protecting public lands and the environment
                                             from the effects of hazardous materials and
                                             wastes.

Emergency Operations                         Providing immediate response for emergency
                                             grasshopper and cricket control operations
                                             and repairing or replacing government
                                             property destroyed or damaged by
                                             catastrophic acts of nature. Major
                                             activities include assessing the extent of
                                             damage or loss, documenting the nature of
                                             immediate repair work or replacement needed,
                                             and determining what additional actions may
                                             be necessary; assisting with the inspections
                                             of public lands where potential outbreaks of
                                             pests may occur; and developing and
                                             implementing control plans.

Workforce and Organizational Support         Providing internal support relating to
                                             automated systems, human resources
                                             management, procurement, property
                                             management, and financial resources
                                             management. Major activities include
                                             providing operations and maintenance support
                                             for the automation of certain administration
                                             processes and exploring new technology;
                                             developing public affairs actions and
                                             recommending them to managers; developing
                                             agency budgets; processing financial
                                             documents and maintaining BLM's system of
                                             accounts and financial management reports;
                                             managing mail, uniforms, and printing
                                             programs; and developing policies and
                                             guidelines for personnel management
                                             activities. This category also includes
                                             bureauwide fixed costs, such as rental
                                             space, communications, security, and
                                             required employee payments.

Mining Law Administration                    Administering mining laws on federal lands
                                             where mining claims are involved. Major
                                             activities include determining the validity
                                             of unpatented mining claims, preparing
                                             mineral patents for review, preparing
                                             mineral potential reports, enforcing surface
                                             management and environmental requirements,
                                             enforcing bonding requirements to ensure
                                             that proper reclamation occurs after a site
                                             has been mined, and collecting location and
                                             annual maintenance fees.

Automated Land and Mineral Records System    Making federal land and mineral records
                                             electronically accessible to the public,
                                             private corporations, other agencies, and
                                             state and local governments. Major
                                             activities include improving the speed and
                                             accuracy of land and mineral record-
                                             processing activities; preserving
                                             deteriorating land and mineral records; and
                                             linking legal land descriptions, geographic
                                             coordinates, land and mineral ownership, and
                                             resource data to provide a picture of the
                                             lands' current uses and availability.

Wildfire Fire Management
-----------------------------------------------------------------------------------------
Wildland Fire Preparedness                   Developing and implementing the wildland
                                             fire management programs and planning to
                                             apply wildland fire to protect, maintain,
                                             and enhance resources and to reduce
                                             hazardous fuels. Major activities include
                                             procuring, in advance of fire emergencies,
                                             the resources that will be needed to respond
                                             when a fire occurs; hiring, training, and
                                             equipping the fire suppression and support
                                             personnel; inspecting and servicing fire
                                             equipment; inventorying and stocking fire
                                             supply caches; operating firefighting
                                             dispatch centers; providing communications
                                             equipment, networks, and facilities;
                                             operating the National Interagency Fire
                                             Center that coordinates fire efforts
                                             nationally; planning and managing prescribed
                                             fires for both planned and unplanned
                                             ignitions, and planning and managing
                                             mechanical treatments to restore and
                                             maintain the environment, protect resources,
                                             and reduce hazardous fuels that could
                                             produce catastrophic fires; monitoring the
                                             effects of prescribed fires on vegetation;
                                             and conducting research to improve
                                             firefighting methods and safety.

Wildland Fire Operations                     Suppressing destructive wildland fires
                                             occurring on or threatening Department of
                                             the Interior's managed lands or protected
                                             lands to protect natural resources and
                                             applying wildland fires and mechanical
                                             treatments to protect, maintain, and enhance
                                             resources and reduce hazardous fuels. Major
                                             activities include suppressing wildland
                                             fires through personnel, aircraft, and other
                                             equipment and supplies; providing emergency
                                             rehabilitation projects after a fire to
                                             stabilize soils, structures, or other damage
                                             caused by the fires; applying fire and
                                             mechanical treatments to enhance resources
                                             and reduce hazardous fuels including the use
                                             of aerial reconnaissance flights and the
                                             mobilization and transport of crews to fire
                                             sites; and replacing routine supplies and
                                             equipment.

Central Hazardous Materials Fund
-----------------------------------------------------------------------------------------
Central Hazardous Materials Fund             Conducting remedial investigations or
                                             feasibility studies and cleanups at
                                             hazardous substance release sites for which
                                             the Department of the Interior is liable.
                                             Major activities include conducting
                                             hazardous material cleanups and the
                                             subsequent maintenance and monitoring of the
                                             remedial actions, and pursuing aggressive
                                             cost-recovery actions from the parties
                                             responsible for contaminating the federal
                                             lands.

Construction and Access
-----------------------------------------------------------------------------------------
Construction                                 Constructing and/or rehabilitating
                                             buildings, recreation sites, fire stations,
                                             roads, and trails.

Land Acquisition
-----------------------------------------------------------------------------------------
Land Acquisition and Acquisition Management  Providing opportunities to acquire
                                             properties that protect threatened resource
                                             values and benefit the public's need for
                                             outdoor recreation. Major activities include
                                             processing actions necessary to complete
                                             land acquisitions and exchanges, including
                                             title searches, appraisals, surveys, and
                                             program coordination with other program
                                             areas or local governments.

Oregon and California Grant Lands
-----------------------------------------------------------------------------------------
Western Oregon Construction and Acquisition  Providing for the acquisition of easements
                                             and the development of facilities to provide
                                             continued legal access to lands for forest
                                             management purposes and to maintain access
                                             to recreation sites for public use. Major
                                             activities include planning and
                                             administering construction projects,
                                             developing and maintaining transportation
                                             plans, designing access roads for general
                                             resource management, including rock
                                             excavation and stabilization work; and
                                             acquiring easements to complete Oregon and
                                             California grant lands timber management
                                             plans.

Western Oregon Facilities Maintenance        Maintaining office buildings, warehouse and
                                             storage structures, shops, greenhouses,
                                             recreation sites, and transportation
                                             systems. Major activities include upgrading
                                             infrastructure needs to accommodate
                                             increasing public use; disposing of garbage;
                                             repairing and maintaining facilities;
                                             planning, surveying, and design work;
                                             contract supervision and the inventorying of
                                             facilities; and inspecting, repairing, and
                                             maintaining forest roads, trails, and
                                             bridges.

Western Oregon Resources Management          Providing for the management of forest lands
                                             in western Oregon to meet the objectives of
                                             the President's Forest Plan. Major
                                             activities include designing and
                                             administering timber sales; monitoring
                                             ecological impacts and resource trends;
                                             developing site-specific and watershed-
                                             level prescriptions; maintaining current
                                             inventories of sites available for
                                             reforestation and forest development;
                                             planting high-quality, genetically superior
                                             seedlings; fertilizing, pruning, and
                                             performing precommercial thinning to improve
                                             growth; monitoring soil, water, and air
                                             quality to determine the effectiveness of
                                             mitigation measures; developing and
                                             maintaining databases of wildlife, fish, and
                                             plant species and their habitat on public
                                             lands; maintaining and improving vegetative
                                             conditions on grazed lands; and developing
                                             and maintaining land use plans.

Western Oregon Information and Resource      Providing for the acquisition, operation,
Data System                                  and maintenance of the automated data
                                             support systems required for managing the
                                             President's Forest Plan. Major activities
                                             include developing, operating, monitoring,
                                             and supporting automated system
                                             applications, hardware, software, and
                                             databases; providing technical user support
                                             for spatial data management; acquiring
                                             graphic, analog, or digital data; producing
                                             base or thematic maps; and developing data
                                             models.

Jobs in the Woods                            Creating family-wage job opportunities for
                                             displaced forest workers and stimulating
                                             economic growth for local communities. Major
                                             activities include contracting with the
                                             private sector in response to the
                                             President's initiative to provide stimulus
                                             to local economies and employment
                                             opportunities.

Range Improvements
-----------------------------------------------------------------------------------------
Range Improvements                           Restoring ecosystems or improving the
                                             productivity of public rangeland ecosystems
                                             to benefit livestock, fish, and wildlife
                                             habitat and watershed protection. Major
                                             activities include managing the
                                             administration of the range improvements on
                                             public lands, including project planning,
                                             engineering and design, and project
                                             monitoring; planning, constructing, and
                                             developing projects to prevent resource
                                             damage or relieve conflicts in resource use;
                                             and initiating prescribed burns and
                                             wildlife/livestock water developments.

Service Charges, Deposits, and Forfeitures
-----------------------------------------------------------------------------------------
Rights of Way Process                        Processing applications for rights-of-way.
                                             Major activities include processing
                                             applications, granting compliance, and
                                             monitoring.

Adopt-a-Horse Program                        Conducting the adoptions for wild horses and
                                             burros on public lands. Major activities
                                             include feeding, caring for, and
                                             transporting wild horses or burros from
                                             public lands; collecting data through
                                             inventory studies, research, monitoring, and
                                             animal census; and planning, developing, and
                                             maintaining land use plans and herd
                                             management plans.

Repair of Damaged Lands                      Collecting for land damage by users who have
                                             not fulfilled the requirements of contracts
                                             or bonds.

Cost Recoverable Realty Cases                Performing realty work on a cost-
                                             recoverable basis. Major activities include
                                             conducting exploratory programs to determine
                                             the type and amount of mineral deposits,
                                             establishing fair market values of the
                                             mineral interests to be conveyed, and
                                             preparing conveyance documents.

Timber Contract Expenses                     Performing certain rehabilitation work on
                                             forest land after the completion of timber
                                             sales. This work is funded by cash deposits
                                             made by the timber purchaser. Major
                                             activities include performing slash
                                             disposal, reforesting harvested lands, and
                                             preparing the lands before reforestation.

Copy Fees                                    Providing copies of official public land
                                             records. Major activities include
                                             researching the documents and printing them.

Miscellaneous Permanent Payment Appropriations/Payment in Lieu of Taxes
-----------------------------------------------------------------------------------------
Payments in Lieu of Taxes                    Compensating local units of government for
                                             the presence of federal lands within their
                                             boundaries. Major activities include
                                             calculating the amounts due to the counties,
                                             transmitting the moneys to the counties,
                                             communicating with the counties, and
                                             maintaining a system of records to account
                                             for the disbursements made to the counties.

Permanent Operating Funds
-----------------------------------------------------------------------------------------
Quarters Maintenance                         Maintaining and repairing employee-occupied
                                             quarters. Major activities include planning
                                             maintenance activities, preparing contracts,
                                             performing condition surveys or inspections,
                                             and scheduling corrective maintenance.

Recreation Fee Collections                   Collecting and retaining recreation receipts
                                             to offset fee collection costs. Major
                                             activities include collecting recreation
                                             fees at designated sites, collecting fees
                                             for special recreation permits and federal
                                             recreation passports, and purchasing and
                                             maintaining fee collection equipment.

Recreational Fee Demonstration Sites, BLM    Developing pilot recreation fee
                                             demonstration projects. Major activities
                                             include working with local communities and
                                             recreation users to determine the kinds of
                                             services desired and the corresponding fees
                                             to be charged and cleaning, maintaining, and
                                             improving the designated recreation site.

Forest Ecosystem Health and Recovery Fund    Providing BLM field offices with funding for
                                             planning, preparing, administering, and
                                             reforesting salvage timber sales. Major
                                             activities include selling salvage timber,
                                             performing subsequent site preparation and
                                             reforestation, and maintaining the sales
                                             areas.

Road Maintenance Deposits                    Collecting money for road maintenance from
                                             commercial users of public lands and the
                                             public domain lands transportation system.
                                             Major activities include planning for the
                                             reconstruction, repair, survey and design,
                                             and architectural and engineering and/or
                                             contract preparation for road maintenance;
                                             completing normally scheduled maintenance on
                                             all roads; and completing maintenance
                                             resulting from some abnormal situation that
                                             requires immediate corrective action.

Pipeline Restoration Funds                   Providing for the deposit and use of fees
                                             collected by BLM for the sales of green
                                             timber pursuant to legislative timber
                                             salvage provisions. Major activities include
                                             preparing timber sales on BLM lands and
                                             eliminating the backlog of recreation
                                             projects on BLM lands.

Miscellaneous Trust Funds
-----------------------------------------------------------------------------------------
Miscellaneous Trust Funds                    Providing for the resource development,
                                             protection, and management improvement of
                                             the public lands. Permanent appropriations
                                             for rangeland improvement efforts, surveying
                                             property boundaries, and surveying and
                                             deeding recordation of town lots in Alaska.

Helium Fund and Operations
-----------------------------------------------------------------------------------------
Helium Fund and Operations                   Providing refined helium to meet current
                                             demands and providing crude helium for
                                             future requirements. Major activities
                                             include storing and transmitting helium in
                                             the helium storage system, administering the
                                             sale of crude helium, and overseeing and
                                             collecting payment for the helium produced
                                             from federal lands.

Other Categories of Obligations
-----------------------------------------------------------------------------------------
Working Capital Fund                         Operating and maintaining the motorized
                                             fleet, integrated appropriation/cost
                                             accounting system, BLM signs, and
                                             departmental forms.

Reimbursables                                Funding of BLM activities by another entity.
                                             Major activities include completing
                                             cadastral survey projects, processing
                                             mineral patent applications, recording new
                                             mining claims, processing location notices,
                                             processing appeals notices, and fighting
                                             fires.

Miscellaneous Transfer Accounts              Using money transferred to BLM from other
                                             government agencies. Major activities
                                             include performing damage assessments,
                                             restoring resources on public lands,
                                             developing guidance for damage assessment,
                                             developing and reviewing restoration plans,
                                             and acquiring land; performing emergency
                                             road and bridge repairs, performing
                                             condition surveys, supporting administrative
                                             costs; detecting and controlling forest
                                             pests; and collecting, updating, and
                                             providing geographic coordinates.
-----------------------------------------------------------------------------------------

BUREAU OF LAND MANAGEMENT'S
OBLIGATIONS BY ACTIVITY FOR MAJOR
ORGANIZATIONAL UNITS, FISCAL YEAR
1998
========================================================== Appendix IV

                                                                                                  Alaska               Arizona               California               Colorado
                                                                                                  State                 State                  State                   State
                         BLM total           Washington Office       Operating Centers            Office                Office                 Office                  Office
                   ----------------------  ----------------------  ----------------------  --------------------  --------------------  ----------------------  ----------------------
                   Obligation              Obligation              Obligation              Obligation            Obligation            Obligation              Obligation
Budget activity             s      FTEs\a         s\b      FTEs\c           s        FTEs           s      FTEs           s      FTEs           s        FTEs           s        FTEs
-----------------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  --------  ----------  --------  ----------  ----------  ----------  ----------
Land Resources     $133,299.6     1,879.9   $26,111.2       340.9    $4,731.8        42.5    $2,047.4      18.9    $6,995.8     104.2    $8,030.7       123.8   $10,277.1       149.6
Wildlife and         29,726.3       379.0     5,364.8        69.9     1,086.8        11.3     3,049.1      27.4     1,835.0      19.5     1,908.9        33.4     1,604.3        25.1
 Fisheries
Threatened and       17,936.5       234.4     2,340.4        37.2       753.7         5.3       202.6       2.1     1,603.5      25.0     2,301.6        31.1       644.1         9.5
 Endangered
 Species
Recreation           49,757.7       789.6     6,878.0       135.9     1,027.5         8.0     1,920.9      21.1     5,716.0      86.6     9,826.6       151.5     2,729.1        45.1
 Management
Energy and           74,530.8     1,155.2    14,480.5       202.1     2,270.2        28.4     4,919.0      36.5       540.9       8.3     3,246.4        56.2     6,060.4        94.6
 Minerals
Realty and           70,629.1     1,023.7    11,985.2       178.1     2,468.8        33.6    26,566.0     310.5     2,137.0      32.2     4,134.6        66.3     3,253.4        59.2
 Ownership
 Management
Communication         3,110.3        45.4       358.2         7.6        73.2         0.4         1.6         0       322.6       6.1       724.1        10.2       121.4         2.0
 Sites
Resource             70,425.5       848.9    11,605.0       162.6     6,745.3        67.7     4,212.0      33.0     4,809.1      62.1     6,815.7        88.1     3,649.3        45.8
 Protection and
 Maintenance
Emergency                39.8         0.4         5.9         0.1           0           0           0         0           0         0           0           0           0           0
 Operations
Workforce and       119,137.4       843.3    49,507.4       301.0    15,876.1       166.8     5,873.2      34.1     4,418.3      24.9     6,415.1        37.3     3,562.9        28.3
 Organizational
 Support
Mining Law           37,012.2       488.5     6,117.0        73.1     1,947.9         9.9     2,278.7      23.3     2,876.8      48.2     3,614.3        52.7     1,946.6        25.8
 Administration
Automated Land       39,485.9       101.6     1,487.8        16.4    37,578.0        77.0           0         0         1.0         0         0.1           0         0.4           0
 and Minerals
 Records System
Wildland Fire        92,179.1     1,456.3     9,937.6       212.0    26,398.6       207.7    13,422.6     216.5     2,122.8      41.8     6,669.6       148.3     2,237.4        46.7
 Preparedness
Wildland Fire        75,644.9     1,095.3     1,055.9        28.7    10,857.6        85.7    16,769.1     206.6     2,693.6      45.0     5,579.6       112.2     2,226.4        39.1
 Operations
Central Hazardous       762.7           0      (52.5)           0           0           0           0         0           0         0       704.8           0           0           0
 Materials Fund
Construction          6,844.7        17.0       111.5         2.6           0           0       432.2       0.9       272.4       0.8     1,412.9         4.5       546.7         0.8
Land Acquisition     15,514.4        46.6       508.6         8.1        40.5           0         1.1         0       257.3       3.2     6,138.6         9.3     1,426.2         4.9
 and Acquisition
 Management
Western Oregon       11,318.0        50.0       327.5         7.8           0           0           0         0           0         0           0           0           0           0
 Construction and
 Acquisition
Western Oregon       14,598.5       134.1       756.0        17.7           0           0           0         0           0         0           0           0           0           0
 Facilities
 Maintenance
Western Oregon       85,908.7     1,183.3     9,297.1       159.1       981.5        11.0           0         0           0         0           0           0         0.1           0
 Resources
 Management
Western Oregon        2,255.4        14.8       146.6         2.4       129.5         2.2           0         0           0         0           0           0           0           0
 Information and
 Resource Data
 System
Jobs in the Woods    10,184.7        33.9       194.8         4.6           0           0           0         0           0         0     1,853.3         1.3           0           0
Range                 9,899.8        90.1     1,088.5        14.6           0           0           0         0       311.4       4.3       248.7         2.3       393.6         3.4
 Improvements
Rights of Way         6,355.5        70.2        46.4           0           0           0     3,432.6      36.3        15.2       0.3     1,473.9        12.9       383.8         3.6
 Process
Adopt-a-Horse         1,495.3         0.5       279.5           0         6.7           0           0         0        21.4         0       114.7           0        30.5           0
 Program
Repair of Damaged     1,296.8         8.7           0           0           0           0           0         0       166.9       1.6       149.6         0.3        50.9         0.1
 Lands
Cost Recoverable        468.9         6.7           0           0           0           0         1.1         0       232.8       3.2        88.7         1.7        57.9         0.4
 Realty Cases
Timber Contract         249.8         2.3           0           0           0           0           0         0         7.9       0.2           0           0           0           0
 Expenses
Copy Fees             2,060.7        16.9           0        0 72         7.5         0.6        71.9       2.1        70.5       1.9        65.9           0       179.4         4.5
Payments in Lieu    120,000.0         1.3   119,960.0         1.2        40.0           0           0         0           0         0           0           0           0           0
 of Taxes
Quarters                374.7         1.9         1.3           0           0           0       126.2       0.7         7.5         0        43.7         0.3           0           0
 Maintenance
Recreation Fee          336.2         7.7        27.7         1.2           0           0         6.5       0.1        62.3       2.7        18.4         0.4        15.8         0.1
 Collections
Recreation Fee        1,543.0        16.0       (0.7)           0           0           0         1.8         0        42.1       0.1         6.7           0        25.0           0
 Demonstration
 Sites, BLM
Forest Ecosystem      7,578.6       129.8       716.7        19.5           0           0           0         0       257.6       5.1       105.8         2.9        29.2         0.3
 Health and
 Recovery Fund
Road Maintenance      1,452.9        15.4           0           0           0           0           0         0         4.0       0.1         0.4           0         3.9           0
 Deposits
Pipeline              4,474.1        37.9        89.9         2.3           0           0           0         0           0         0           0           0           0           0
 Restoration
 Funds
Miscellaneous        10,009.3        86.6           0        0 19         5.2           0        71.5       0.3       929.0       5.6     4,937.1        53.9       611.9         3.0
 Trust Funds
Helium Fund and      12,158.1       141.6         1.5         0 1     2,149.9       141.5           0         0           0         0           0           0           0           0
 Operations
Working Capital      19,598.4        20.9     1,706.7         0 2      ,037.5        11.3       150.0       0.1     1,102.0         0     2,127.8         1.2       856.2           0
 Fund
Reimbursables        16,560.3       139.0       336.6           0     5,665.8        28.5     1,362.7       6.2       801.3      11.1       895.9        11.4       606.7         4.5
Miscellaneous         5,625.6        61.1         3.3           0       112.8         1.6       229.7         0       191.0       3.4       774.2        16.9       129.8         3.4
 Transfer
 Accounts
=====================================================================================================================================================================================
Total              $1,181,840    12,675.8  $282,782.2     2,006.5  $133,902.2       941.0   $87,149.5     976.7   $40,824.6     547.5   $80,428.5     1,030.4   $43,662.3       599.4
                           .2
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                              New Mexico       Nevada State      Oregon State       Utah State       Wyoming State
                       Eastern States        Idaho State Office     Montana State Office     State Office         Office            Office            Office             Office
                   ----------------------  ----------------------  ----------------------  ----------------  ----------------  ----------------  ----------------  ------------------
                   Obligation              Obligation              Obligation              Obligati          Obligati          Obligati          Obligati          Obligati
Budget activity             s        FTEs           s        FTEs           s        FTEs       ons    FTEs       ons    FTEs       ons    FTEs       ons    FTEs       ons      FTEs
-----------------  ----------  ----------  ----------  ----------  ----------  ----------  --------  ------  --------  ------  --------  ------  --------  ------  --------  --------
Land Resources       $2,528.2        30.3   $10,261.5       173.7    $9,799.5       135.3  $9,260.1   132.1  $11,610.   173.5  $11,862.   167.0  $10,494.   132.9  $9,288.4     155.2
                                                                                                                    2                 9                 8
Wildlife and            251.3         3.3     2,907.5        43.4     1,632.4        24.6   1,823.4    28.6   1,075.8    16.3   3,168.4    28.2   2,220.5    21.9   1,798.1      26.2
 Fisheries
Threatened and           47.6         0.5     2,551.7        35.7       602.2         7.4     761.3     5.9   1,171.6    13.4   2,293.3    28.4   2,161.9    25.7     501.1       7.3
 Endangered
 Species
Recreation              142.5         1.1     2,239.2        36.3     2,070.1        36.0   3,446.4    54.2   2,415.8    38.7   3,964.1    62.8   5,399.4    82.9   1,982.3      29.5
 Management
Energy and            3,864.4        64.8       471.5         7.6     5,014.7        97.5  13,215.6   206.1   1,274.2    22.3     727.6    11.4   4,913.4    79.4  13,532.1     240.0
 Minerals
Realty and            3,506.2        60.3     2,207.7        41.3     2,724.0        46.1   2,654.6    50.1   2,412.0    39.9   2,026.5    33.6   2,384.9    38.6   2,168.2      34.1
 Ownership
 Management
Communication               0           0       325.0         2.8        15.6         0.3   2,500.0     1.4     523.4     9.9     116.7     1.7     107.5     1.2     171.0       1.9
 Sites
Resource                783.9        11.2     5,402.8        71.0     3,119.9        46.4   3,104.3    30.2   4,476.2    52.6   6,829.5    72.5   5,005.2    59.9   3,867.2      45.7
 Protection and
 Maintenance
Emergency                   0           0         4.8         0.1           0           0         0       0       2.2       0      15.0       0      11.8     0.2         0         0
 Operations
Workforce and         3,179.4        32.4     3,692.1        45.4     3,005.7        17.9   4,587.9    36.0   4,077.9    23.5   6,892.7    30.4   3,918.3    31.3   4,130.8      34.1
 Organizational
 Support
Mining Law              742.0         2.1     1,520.1        17.3     1,775.0        33.9   1,757.1    15.1   6,092.1    98.5   2,462.8    34.5   2,287.5    33.4   1,594.3      21.0
 Administration
Automated Land            0.3           0           0           0           0           0     385.6       7     (0.2)       0       0.3       0       0.4       0      32.0       1.1
 and Minerals
 Records System
Wildland Fire           419.4        12.9     5,083.3       130.4     5,191.8        62.4   1,638.6    34.4   6,406.8   128.4   7,482.5   125.4   3,661.5    57.4   1,506.8      32.0
 Preparedness
Wildland Fire           252.1        14.8     6,887.4       134.6     2,558.0        40.5   1,355.1    22.7   9,075.1   117.4  10,742.7   171.6   4,475.6    55.8   1,116.9      20.7
 Operations
Central Hazardous           0           0        27.0           0           0           0      79.7       0         0       0       3.6     0.0         0       0         0         0
 Materials Fund
Construction                0           0     2,502.4         4.8       280.6           0     115.7     0.4     128.4     0.1     615.0     1.6     183.6     0.5     243.3         0
Land Acquisition            0           0       276.0         3.2       211.4         1.7     702.3     2.3     186.0     2.3     841.2     8.2   4,705.7     2.4     219.6       0.9
 and Acquisition
 Management
Western Oregon              0           0           0           0           0           0         0       0         0       0  10,990.5    42.2         0       0         0         0
 Construction and
 Acquisition
Western Oregon              0           0           0           0           0           0         0       0         0       0  13,842.5   116.4         0       0         0         0
 Facilities
 Maintenance
Western Oregon              0           0           0           0           0           0       0.2       0       2.5     0 7   5,625.3  ,013.1         0       0         0         0
 Resources                                                                                                                            1
 Management
Western Oregon              0           0           0           0           0           0         0       0         0       0   1,979.2    10.3         0       0         0         0
 Information and
 Resource Data
 System
Jobs in the Woods           0           0           0           0           0           0         0       0         0       0   8,136.6    28.1         0       0         0         0
Range                       0           0     1,327.6         9.7     1,850.2        18.8   1,162.6     4.4     949.5    11.5     811.0     5.2     670.5     7.0   1,086.2       9.1
 Improvements
Rights of Way               0           0        20.3         0.4         5.7           0     276.2     5.2      69.8     1.2     139.1     1.4     189.6     3.1     302.9       5.9
 Process
Adopt-a-Horse           503.5           0           0           0           0           0      45.9       0       1.3       0     424.8     0.1      32.7       0      34.4       0.4
 Program
Repair of Damaged           0           0        24.2           0         8.4           0     121.8     1.6     465.4     2.4     240.7     2.5      42.5     0.2      26.5         0
 Lands
Cost Recoverable          1.4           0         6.3         0.1         0.1           0         0       0       4.3     0.1       0.6       0      75.8     1.2         0         0
 Realty Cases
Timber Contract             0           0           0           0           0           0         0       0         0       0     241.9     2.1         0       0         0         0
 Expenses
Copy Fees                78.0         0.3       153.0         1.4        84.6           0     135.5     1.1      40.4       0     173.8     0.4     110.0     1.4     170.3       3.2
Payments in Lieu            0           0           0           0           0           0         0       0         0       0         0       0         0       0         0         0
 of Taxes
Quarters                    0           0         3.8           0         4.0           0         0       0     137.8     0.5      29.8     0.2      20.6     0.2         0         0
 Maintenance
Recreation Fee              0           0         8.4         0.1           0           0       6.6       0       1.6     0 6     6.8 1    .2 9     2.3 1    .9 2       9.6         0
 Collections
Recreation Fee              0           0        29.6         0.1           0           0       3.8     0.1     822.5     3.3     550.3    11.0      61.9     1.4         0         0
 Demonstration
 Sites, BLM
Forest Ecosystem            0           0       437.8         8.7       176.9         2.3         0       0         0       0   5,836.0    90.8         0       0      18.5       0.2
 Health and
 Recovery Fund
Road Maintenance            0         0.0        24.9           0         9.7           0       0.4       0      17.4     0.2   1,328.7    14.3      63.2     0.9       0.3         0
 Deposits
Pipeline                    0           0           0           0           0           0         0       0         0       0   4,384.2    35.6         0       0         0         0
 Restoration
 Funds
Miscellaneous            94.5         1.5       585.4         4.5       202.3         0.9     417.9     0.9     689.2     6.0     666.6     7.6     483.8     1.8     125.1       0.8
 Trust Funds
Helium Fund and             0           0           0           0           0           0       6.7     0.1         0       0         0       0         0       0         0         0
 Operations
Working Capital         179.0           0     1,503.5           0     1,274.8           0   1,428.4       0   2,053.7       0   2,563.3     8.4   1,390.4       0   1,225.2         0
 Fund
Reimbursables         1,092.7        22.4     1,062.3        11.8       441.4         4.7     977.6     8.1   1,054.2     4.9   1,508.4    19.9     446.8     3.3     307.9       2.1
Miscellaneous           221.7         3.6       163.3         3.7       153.9         3.4     195.5     3.4     128.6     0.7   3,274.7    20.7      17.8     0.1      29.1       0.3
 Transfer
 Accounts
=====================================================================================================================================================================================
Total               $17,888.1       261.3   $51,710.3       788.0   $42,213.0       580.0  $49,916.   651.1  $57,365.   767.6  $192,859  2,208.  $55,629.   646.0  $45,507.     671.6
                                                                                                  7                 7                .3       6         7                 9
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
FTEs (full-time equivalents) include overtime hours, which will not
agree with BLM Budget Justifications, and official FTE usage for BLM. 
The total regular-hour FTE usage in fiscal year 1998 was 10,001. 

\b This amount includes $232,223,986 of Bureau-wide costs such as the
leave taken by the entire BLM workforce, workmen's compensation,
unemployment insurance, and nationwide Payments in Lieu of Taxes. 

\c Leave surcharge--that is, nonwork benefits such as vacation time,
sick leave, or holidays--is managed centrally.  For the purpose of
this report, it has been added to the Washington Office total in
order to fully account for all funds and FTE usage.  Approximately 80
percent of the FTE usage represents leave taken by the entire BLM
workforce; the remaining 20 percent represents leave taken by the
employees in the Washington Office.  If the leave portion for the
rest of BLM were taken out of the amount of FTEs, the Washington
Office's total would be approximately 401, which includes its portion
of the FTE usage including leave. 

Source:  GAO's analysis of BLM's data. 

FOREST SERVICE'S ACTIVITIES
=========================================================== Appendix V

Budget line item                    Activities include
----------------------------------  --------------------------------------------
Forest and Rangeland Research
--------------------------------------------------------------------------------
Forest and Rangeland Research       Developing and communicating scientific
                                    information and technology needed to
                                    protect, manage, and use the natural
                                    resources of America's forests and
                                    rangelands. The resulting studies provide
                                    data for focusing on research issues and
                                    needs, including the support for ecosystem
                                    management. Research activities are divided
                                    into four broad areas: Vegetation Management
                                    and Protection; Wildlife, Fish, Watershed,
                                    and Atmospheric Sciences Research; Resource
                                    Valuation and Use; and Forest Resources
                                    Inventory and Monitoring. Activities include
                                    developing land management (silvicultural)
                                    alternatives, management guides, and
                                    harvesting systems for major forest types;
                                    developing growth and yield prediction
                                    systems and models; prescribing ways to
                                    reduce the impacts of unwanted forest fires,
                                    insects, and diseases; analyzing watershed
                                    processes and functions, freshwater aquatic
                                    communities and habitat, and the restoration
                                    of riparian (adjacent aquatic) communities,
                                    conditions, trends and capabilities of
                                    forest and rangeland resources; estimating
                                    current and anticipated demands for these
                                    resources; promoting the conservation and
                                    sustainability of forest products through
                                    improved processing methods, the design and
                                    treatment for durable long-lasting
                                    materials, and recycling to reduce demand on
                                    natural resources; and providing long-term
                                    baseline resource data and a scientific
                                    basis to assess the current extent,
                                    condition, and outlook for the forest
                                    resources.

State and Private Forestry
--------------------------------------------------------------------------------
Forest Health Management            Coordinating forest health protection,
                                    including insect and disease management,
                                    across federal, tribal, state, and private
                                    lands. Activities include providing
                                    professional forest health assistance,
                                    including detection surveys and evaluations,
                                    for all federal forest lands; preventing and
                                    suppressing forest insects and diseases on
                                    all federal and tribal lands and
                                    coordinating with state agencies when
                                    treatment projects include intermingled
                                    private lands; providing presuppression and
                                    post-suppression surveys to assess the
                                    effectiveness of the treatments; and
                                    developing, improving, and demonstrating new
                                    technologies, materials, methods, and
                                    strategies to improve the efficiency of
                                    forest pest management. In addition to pest
                                    management activities, staff also
                                    participate in cooperative fire protection.
                                    This program provides states and local fire
                                    agencies with technical and financial
                                    assistance to protect federal, state, and
                                    private lands from wildfire. The activities
                                    include providing program assistance to
                                    improve the efficiencies of states' basic
                                    fire protection programs by sharing
                                    resources and exchanging technologies and
                                    information on historical data for planning
                                    and analysis, loaning excess federal
                                    personal property to state foresters and
                                    rural communities, and providing nationwide
                                    fire prevention programs through public
                                    service advertisements, educational and
                                    other promotional activities.

Cooperative Forestry                Providing nonindustrial private forest
                                    landowners with technical and stewardship
                                    planning assistance and supplying high-
                                    quality, genetically improved tree seed and
                                    planting stock for reforestation. Activities
                                    include providing assistance in developing
                                    long-term forest stewardship plans to guide
                                    the management of private forestlands,
                                    working with private owners to implement the
                                    best forest management practices, and
                                    providing state, private, and federal
                                    nurseries with information, technology, and
                                    training on forest nursery management, tree
                                    improvement, tree planting methodology,
                                    seedling culture, and equipment development.
                                    This category also includes participation in
                                    many cooperative and cost-share programs,
                                    including the stewardship incentives
                                    program, the forest legacy program, the
                                    urban and community forestry program, the
                                    economic action programs, and the Pacific
                                    Northwest Assistance Programs.

Emergency Pest Suppression          Meeting emergency pest suppression needs in
                                    excess of appropriated amounts for forest
                                    pest management. Major activities include
                                    detecting and evaluating insect epidemics on
                                    federal lands, providing federal land
                                    managers with assistance and status
                                    information on integrated pest management,
                                    monitoring forest health, consulting with
                                    states on forest health protection
                                    strategies, and performing pre-and post-
                                    suppression surveys to identify treatment
                                    areas and assess treatment effectiveness.

National Forest System
--------------------------------------------------------------------------------
Land Management Planning            Planning the management of all resources on
                                    national forest system lands to fulfill the
                                    requirements of the National Forest
                                    Management Act. The ongoing planning process
                                    results in forest plans that provide
                                    programmatic guidance for on-the-ground
                                    natural resources management. The forest
                                    plans integrate various laws and regulations
                                    governing the management of the national
                                    forests and site-specific project decisions.
                                    Major activities include gathering data on
                                    all natural resources on a particular parcel
                                    of land and determining, through public
                                    input and professional management
                                    evaluations, the best use of the land and
                                    resources on it.

Inventory and Monitoring            Inventorying and assessing the resources on
                                    national forest system lands to provide a
                                    basis for forest plans. Inventorying
                                    activities include collecting data to
                                    analyze the status or conditions of forest
                                    resources as well as the physical
                                    characteristics of the forest. Monitoring
                                    activities include preparing annual reports
                                    by the individual forests to document the
                                    monitoring reports required by forest plans,
                                    providing information on the effectiveness
                                    of forest management activities, and
                                    suggesting cost-effectiveness improvements.
                                    Regional offices compile the information
                                    from individual forests and annually prepare
                                    a report to document how their particular
                                    management approach is moving forests and
                                    grassland ecosystems toward desired
                                    conditions.

Recreation Use                      Supporting community and state efforts to
                                    diversify their economic base through
                                    sustainable tourism activities. Activities
                                    include preparing, administering, and
                                    managing cultural and recreational
                                    activities; constructing and maintaining
                                    recreation sites and facilities; planning
                                    for and managing proposed and designated
                                    Wild and Scenic Rivers in national forests;
                                    conducting trail improvement activities
                                    including constructing and maintaining
                                    trails; conducting visual resource
                                    improvement activities and visual resource
                                    operations; managing and monitoring
                                    wilderness uses and conditions; identifying,
                                    evaluating, protecting, and interpreting the
                                    heritage resources on national forest lands;
                                    and providing interpretive services for the
                                    public to better understand conservation
                                    issues on public lands.

Wildlife and Fisheries Habitat      Providing organizational leadership to
Management                          coordinate activities for productive and
                                    useful wildlife and fisheries habitat in
                                    cooperation with state and federal agencies,
                                    organizations, and partners. Major
                                    activities include protecting, restoring,
                                    and improving wildlife and fish habitats;
                                    providing opportunities for consumptive and
                                    commercial uses, including hunting and
                                    trapping; increasing wildlife viewing/
                                    appreciation opportunities; preparing for,
                                    constructing, maintaining, and managing
                                    anadromous (for example, salmon) fish
                                    habitat, inland fish habitats, and
                                    improvements to threatened, endangered, and
                                    sensitive species habitats; and leading
                                    conservation, inventorying, and restoration
                                    actions to benefit the plant component of
                                    biological diversity.

Rangeland Management                Enhancing and restoring rangeland
                                    ecosystems, providing for multiple-use
                                    values, and achieving forest plan objectives
                                    through the administration of permitted
                                    livestock grazing. Major activities include
                                    the issuance and administration of grazing
                                    permits and the application of sound
                                    management practices on grazing allotments;
                                    monitoring grazing allotments to determine
                                    the effectiveness of allotment management
                                    plans in achieving objectives for
                                    vegetation, water quality, soils, threatened
                                    and endangered species habitat, and other
                                    resource elements and monitoring permittees'
                                    compliance with the terms and conditions of
                                    grazing permits; managing rangeland
                                    vegetation to achieve conditions prescribed
                                    in forest plans and monitoring to ensure
                                    that the conditions are maintained;
                                    providing for the protection, management,
                                    and control of wild horses and burros on
                                    forest lands; and managing the infestation
                                    of noxious weeds and preventing further
                                    infestations.

Forestland Management               Using timber sales as a means of
                                    implementing forest plan objectives and
                                    maintaining healthy ecosystems. Major
                                    activities in timber sale management include
                                    (1) performing silvicultural examinations
                                    that involve reviewing, analyzing, and
                                    treating timber stand conditions to meet
                                    land and resource management objectives and
                                    desired future conditions; (2) preparing and
                                    administering timber sales (which include
                                    designing timber sales to implement forest
                                    plan objectives, offering the timber for
                                    sale, awarding the contract, monitoring the
                                    contractor to minimize adverse environmental
                                    impacts, and ensuring that harvesting is in
                                    accordance with the contract's provisions)
                                    and treating the sale area after the
                                    contract's completion through brush
                                    disposal, reforestation, stand improvement
                                    initiatives, and other resource coordination
                                    activities identified in the sale area
                                    design plan; (3) providing the public with
                                    fuelwood and other miscellaneous products;
                                    and (4) administering appeals and litigation
                                    arising from timber sales. Major activities
                                    in forestland vegetation management include
                                    the reforestation of harvested lands with
                                    appropriated money; timber stand improvement
                                    activities to improve the health of the
                                    forest and maintain the rapid growth of
                                    harvested lands; providing appropriate
                                    genetic material to restore, maintain, and
                                    enhance the genetic quality of seed and
                                    planting stock used on forest lands; and
                                    operating nursery operations to produce
                                    high-quality seeds and seedlings to meet
                                    reforestation needs.

Soil, Water and Air Management      Protecting and enhancing soil quality and
                                    productivity, air quality, water quality and
                                    quantity, and the timing of waterflows.
                                    Major activities include providing soil,
                                    water, and air quality and weather
                                    information to sustain healthy ecosystems;
                                    monitoring existing soil and water
                                    improvements to ensure their continued
                                    effectiveness and plan for future
                                    improvements; identifying and quantifying
                                    water requirements and filing for water
                                    rights; installing, constructing, and
                                    maintaining structural and nonstructural
                                    watershed improvements; protecting sensitive
                                    areas from the effects of air pollution and
                                    providing mitigation measures for management
                                    activities; developing interagency training
                                    and application tools for weather and
                                    climate applications courses; and collecting
                                    data from automated weather stations. The
                                    watershed improvement program involves
                                    implementing treatments to bring watersheds
                                    back to a fully productive level and
                                    maintaining treatments in previous years to
                                    ensure their continued productivity.

Minerals and Geology Management     Facilitating energy and mineral development
                                    on forest lands; protecting ecosystems by
                                    requiring appropriate design, mitigation,
                                    and reclamation measures; reclaiming
                                    abandoned mines; and monitoring and
                                    inspecting operations to ensure compliance.
                                    Major activities include exploring,
                                    developing, and producing energy and
                                    minerals within forest lands to contribute
                                    to economic growth; creating jobs in rural
                                    communities; and raising revenues for the
                                    U.S. Treasury and states; providing
                                    information for land management decisions,
                                    inventorying and assessing geologic
                                    conditions, and identifying and managing
                                    significant geologic resources.

Land Ownership Management           Authorizing forest land uses that benefit
                                    the general public and administering these
                                    uses for the protection of the public and
                                    natural resource values. Major activities
                                    include administering special use
                                    applications, amendments, transfers,
                                    inspections, terminations, suspensions, and
                                    fee reviews; preparing for, surveying,
                                    maintaining, and managing landlines, rights-
                                    of-way, and land acquisitions; locating,
                                    surveying, and posting property boundaries;
                                    performing rights-of-way acquisition
                                    activities; purchasing, donating,
                                    exchanging, transferring, selling, granting,
                                    and selecting land; and providing forest
                                    managers and others with maps, geospatial
                                    data, and technical services.

Infrastructure Management           Operating and maintaining the forest road
                                    system to provide needed access for resource
                                    program activities and forest users. Major
                                    activities include collecting and analyzing
                                    data on road use and the physical condition
                                    of the road system; determining road
                                    jurisdiction and resolving jurisdictional
                                    problems; managing rights-of-way and
                                    administering all construction, maintenance,
                                    and use agreements; administering agreements
                                    with counties, states, and cities to jointly
                                    develop and maintain roads for mutual
                                    benefit; obliterating roads no longer
                                    needed; inspecting roads and bridges to
                                    determine maintenance needed; and performing
                                    road maintenance work. In addition to road
                                    system activities, this account also
                                    includes the maintenance and improvements to
                                    facilities used for fire and administrative
                                    purposes.

Law Enforcement Operations          Working with state and local governments to
                                    enforce state and local laws, rules, and
                                    regulations within the national forest
                                    system. Major activities include
                                    investigating criminal activities occurring
                                    on forest lands--such as timber theft,
                                    archaeological violations, wildfire arson,
                                    and other resource violations--and
                                    eliminating the illicit cultivation,
                                    manufacture, or distribution of controlled
                                    substances on forest lands.

General Administration              Providing general management, strategic
                                    direction, and administrative support to
                                    accomplish the organizational mission
                                    efficiently and upholding the laws governing
                                    administrative activities. This budget item
                                    includes those costs not readily identified
                                    with a single project and involves line
                                    management, program support, and common
                                    services. The costs include, among other
                                    things, salary, travel, vehicle use,
                                    training, secretarial support, rent,
                                    supplies, communications, computer and other
                                    office equipment, mail and postage, and
                                    National Finance Center costs.
                                    Administrative functions funded by this
                                    budget item include legislative affairs,
                                    program development and budget, personnel
                                    management, civil rights, policy and
                                    management analysis, fiscal and accounting
                                    services, information systems and
                                    technology, and office management.

Wildland Fire Management
--------------------------------------------------------------------------------
Fire Presuppression and Fuels       Planning and preparing for the protection of
                                    life, property, and natural resources on the
                                    191 million acres of national forest system
                                    lands and an additional 20 million acres of
                                    adjacent state and private lands.
                                    Preparedness activities occur before the
                                    onset of a fire, and major activities
                                    include planning for the upcoming fire year
                                    and providing prevention and detection
                                    information and education; providing
                                    training, equipment, and supplies in
                                    readiness for future fires; assisting states
                                    and other federal agencies by providing
                                    training, planning assistance, sharing
                                    equipment, and providing interagency
                                    coordination fire centers; and determining,
                                    through various modeling techniques, the
                                    resource needs for the upcoming fire season.

Fire Suppression and                Protecting life, property, and natural
Rehabilitation                      resources on national forest system lands
                                    and adjacent state and private lands through
                                    suppression operations and the emergency
                                    rehabilitation of burned areas. Major
                                    activities include suppressing wildfires on
                                    forest lands or those threatening the lands
                                    under fire protection agreements and
                                    providing funds for the emergency
                                    rehabilitation of severely burned forest
                                    lands to stabilize soil, control water
                                    runoff, minimize sediment and debris
                                    movement, and minimize threats to human life
                                    and property. Fire operations include
                                    hazardous fuel reduction activities,
                                    including planning and implementing
                                    mechanical treatments and prescribed fires,
                                    and monitoring fuel-treatment
                                    accomplishments.

Reconstruction and Construction
--------------------------------------------------------------------------------
Facility Construction               Constructing, reconstructing, and acquiring
                                    buildings and other facilities. Major
                                    activities include planning for and
                                    rehabilitating, renovating, replacing,
                                    improving, reconstructing, or constructing
                                    laboratories and other research, fire,
                                    administrative, or nursery facilities; and
                                    repairing and rehabilitating existing
                                    recreation facility infrastructure to
                                    eliminate health and safety problems.

Road Construction                   Providing safe, efficient, and
                                    environmentally sound access for the
                                    multiple uses of forest lands, including
                                    recreation, commercial resource protection,
                                    and administrative activities. Major
                                    activities include administering, surveying,
                                    designing, reconstructing, and constructing
                                    roads and bridges; purchasing rights-of-
                                    way; and obliterating unneeded roads.

Trail Construction                  Reconstructing and repairing trails,
                                    bridges, and other components of the
                                    existing trail system to better serve the
                                    growing demand for hiking, backpacking,
                                    horseback riding, and biking. Major
                                    activities include upgrading trails,
                                    replacing nonfunctional drainage structures,
                                    and removing facilities that no longer
                                    provide quality customer service.

Land Acquisition
--------------------------------------------------------------------------------
Land Acquisition                    Acquiring lands, waters, and related
                                    interests within the national forest system
                                    for public outdoor recreation, the
                                    conservation of habitat, the protection of
                                    cultural resources, and the protection of
                                    ecological areas, and acquiring lands to
                                    replace lands acquired by state, county, or
                                    municipal governments or public school
                                    authorities in land exchanges. Major
                                    activities include administering the land
                                    acquisition program; planning, coordinating,
                                    and preparing for land ownership
                                    adjustments; and executing land withdrawals,
                                    revocations, and inspections of partial
                                    interests, land title claims, and
                                    encroachments.

Other Appropriations
--------------------------------------------------------------------------------
Range Betterment Fund               Arresting range deterioration and improving
                                    range forage conditions with benefits to
                                    livestock production, watershed protection,
                                    and wildlife. The program is financed from
                                    grazing fee receipts in 16 western states.
                                    Major activities include conducting
                                    rangeland vegetation management operations
                                    and improvement activities and noxious weed
                                    management and treatment costs; preparing
                                    for and conducting rangeland inventory and
                                    monitoring for compliance with forest land
                                    and resource management plans; and
                                    preparing, constructing, maintaining, and
                                    managing structural and nonstructural
                                    rangeland vegetation improvements.

Gifts, Donations, Bequests--        Funding of forest and rangeland research
Research                            activities. Major activities include
                                    accepting, holding, and administering gifts,
                                    donations, and bequests of money, real
                                    property, or personal property to establish
                                    or operate a research facility or perform
                                    authorized research activities.

Permanent Appropriations
--------------------------------------------------------------------------------
Licensee Programs                   Preventing forest fires and promoting
                                    environmental quality. Major activities
                                    include furthering a nationwide forest fire
                                    prevention campaign and promoting the wise
                                    use of the environment and programs that
                                    foster the maintenance and improvement of
                                    environmental quality.

Brush Disposal                      Disposing of brush and other debris
                                    resulting from cutting operations on timber
                                    sale areas to protect and maintain forest
                                    resources. Major activities include
                                    crushing, chipping, and/or the burning of
                                    brush.

Restoration of Forest Lands and     Completing all necessary work to return
Improvements                        national forest lands to optimum production
                                    in a timely manner because purchasers failed
                                    to complete tasks called for in their
                                    contracts. Major activities involve
                                    reforesting lands, repairing roads, and
                                    repairing watersheds.

Recreation Fee for Collection       Withholding up to 15 percent of all Land and
Support                             Water Conservation recreation fees collected
                                    to recover the costs associated with
                                    collecting recreation, admission, and user
                                    fees. Major activities include collecting
                                    fees from recreation activities.

Recreation Fee Demonstration        Testing the collection, retention, and
                                    investment of new recreation admission and
                                    user fees. Major activities include
                                    restoring and upgrading recreation
                                    facilities.

Timber Roads Purchaser Election     Allowing timber purchasers qualifying as
                                    ï¿½small business concernsï¿½ to elect to have
                                    the permanent roads engineered and built by
                                    the Forest Service. The activities involved
                                    would be similar to those undertaken for the
                                    roads construction discussed above in
                                    addition to actually building or contracting
                                    the building of the roads.

Ten Percent Road and Trail Fund     Correcting road and trail problems that
                                    adversely affect forest, rangeland, and
                                    aquatic ecosystems on forest lands.
                                    Beginning in fiscal year 1998, these funds
                                    (10 percent of receipts in the Forest
                                    Service's National Forest Fund) were used in
                                    addition to regular appropriations for road
                                    and trail maintenance and reconstruction.
                                    Major activities would be similar to the
                                    road and trail construction discussed above.

Timber Salvage Sale Fund            Providing the timely harvest of trees that
                                    are dead, insect or disease infested,
                                    windthrown, or imminently susceptible to
                                    insect attack. Receipts from the sales of
                                    salvage timber may be placed in the Salvage
                                    Sale Fund to be used to prepare and
                                    administer future salvage sales. The major
                                    activities involved generally would be
                                    similar to those used in the regular
                                    forestland management program discussed
                                    above.

Quarters Maintenance                Operating and maintaining employee quarters.
                                    Funds are used in addition to the
                                    maintenance of facilities funds discussed
                                    above. The activities would be similar to
                                    maintain, operate, and manage water,
                                    wastewater disposal systems, and similar
                                    services normally provided by a landlord.

Trust Funds
--------------------------------------------------------------------------------
Knutson-Vandenberg Fund             Reforesting harvested lands, improving
                                    timber growth and product quality, and
                                    protecting and improving other resources.
                                    Funds from timber sales may be deposited in
                                    the Knutson-Vandenberg Fund and used to
                                    accomplish these activities on the sale
                                    areas. Major activities include growing
                                    trees for planting, planting trees, sowing
                                    seeds, removing weeds and other competing
                                    vegetation, and preventing animal damage;
                                    thinning trees to enhance growth; performing
                                    prescribed burns to enhance wildlife habitat
                                    and rangeland ecosystems; planting riparian
                                    vegetation; removing barriers to fish
                                    passage and stabilizing stream banks;
                                    constructing birds' nest boxes or tree
                                    cavities and water catchments; and
                                    installing gates, signs, and traffic control
                                    barriers.

Cooperative Work, Other             Protecting and improving the resources of
                                    the national forest system. Deposits from
                                    cooperators are used for the construction,
                                    reconstruction, and maintenance of roads,
                                    trails, and other improvements and for
                                    scaling services, fire protection, and other
                                    resource purposes. Activities involved would
                                    be similar to the roads and trails and fire
                                    programs discussed above.

Reforestation Trust Fund            Preventing the backlog of reforestation and
                                    timber stand improvement work, enhancing
                                    forest health, and reducing hazardous fuel
                                    loads of forest stands. Funds generated by
                                    tariffs on imported solid wood products are
                                    used in conjunction with Knutson-Vandenberg
                                    funds and annual appropriations to reforest
                                    harvested lands and for other reforestation-
                                    related projects. Major activities would be
                                    similar to those listed for the Cooperative
                                    Work--Knutson-Vandenberg Fund and for the
                                    forestland vegetation discussed above.

Other Categories of Obligations
--------------------------------------------------------------------------------
Natural Disaster Funding            Carrying out natural resource restoration
                                    and maintenance work in response to flood,
                                    landslide, and related damages cause by the
                                    severe weather events during the winter of
                                    1995-96. Major activities include watershed
                                    restoration, reforestation, insect and
                                    disease control, road and trail maintenance
                                    and reconstruction, and facility
                                    reconstruction as a result of a natural
                                    disaster. This category of obligations
                                    involves various supplemental appropriations
                                    of an emergency nature.

Human Resources Programs            Administering and hosting programs in work,
                                    training, and education for the unemployed,
                                    underemployed, elderly, young, and others
                                    with special needs. The Forest Service
                                    participates in these human resource
                                    programs frequently in conjunction with the
                                    Department of Labor and other organizations.
                                    The major human resource programs include
                                    the Job Corps; the Senior Community Service
                                    Employment Program; the Youth Conservation
                                    Corps; Volunteers in the National Forests;
                                    Keep America Beautiful, Inc.; and Youth
                                    Forest Camps.

Reimbursable Activities             This category includes one-time work
                                    performed for others. This category includes
                                    reimbursements to four major Forest Service
                                    appropriations for services performed for
                                    other units within the Forest Service or
                                    other federal agencies. The four
                                    appropriations are construction, research,
                                    national forest system activities, and fire.

Transfer Funds                      Performing work for or managing programs of
                                    another federal agency. Examples include the
                                    management of Job Corps Centers for the
                                    Department of Labor or performing major
                                    emergency road or facility repairs for the
                                    Federal Highway Administration because of
                                    floods or hurricanes.

Holding and Clearing                This category is a financial account and not
                                    a program or activity. It relates to funds
                                    that are held because the specific fund to
                                    which they apply is not known; moneys for
                                    which the government is acting solely as a
                                    banker, fiscal agent, or custodian are
                                    returned to the depositor; moneys are in
                                    dispute because ownership is in doubt; and
                                    unidentified remittances that presumably are
                                    not for credit are placed in budget
                                    accounts. This category also includes
                                    incorrect or erroneous accounting for salary
                                    costs that are included as a payroll force
                                    release until the correct account can be
                                    identified and the charges are cleared from
                                    the holding and clearing account.
--------------------------------------------------------------------------------

FOREST SERVICE'S OBLIGATIONS BY
BUDGET LINE ITEM FOR MAJOR
ORGANIZATIONAL UNITS, FISCAL YEAR
1998
========================================================== Appendix VI

                                             Washington office                                                                                                    Pacific Southwest
                    Forest Service total         activities           Northern Region      Rocky Mountain Region      Southwest Region     Intermountain Region         Region
                   ----------------------  ----------------------  ----------------------  ----------------------  ----------------------  --------------------  --------------------
                   Obligation              Obligation              Obligation              Obligation              Obligation              Obligation            Obligation
Budget line item            s      FTEs\a           s        FTEs           s        FTEs           s        FTEs           s        FTEs           s      FTEs           s      FTEs
-----------------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  --------  ----------  --------
Forest and         $182,251.2     2,352.8   $11,973.1        73.6       $52.0         0.1         $ 0           0       $19.8         0.4      $148.9       0.2        $8.1         0
 Rangeland
 Research
Forest Health        72,781.6       353.7     6,199.9        41.6     3,878.9        40.6     4,015.5        30.7     2,292.9        17.4     2,427.2      24.0     5,139.4      40.1
 Management
Cooperative          90,094.6       303.5    11,613.9        34.1     2,041.0         5.2     3,295.1         4.2     2,375.1         4.3     2,170.8       5.9     6,226.8      13.4
 Forestry
Emergency Pest          521.5         5.4           0           0        67.6         1.2        14.7         0.5        40.5         0.9        52.0       0.5         1.7         0
 Suppression
Land Management      32,980.9       451.0     1,955.0        16.9     2,599.1        35.0     4,888.0        74.4     3,060.6        43.5     6,196.8      72.3     2,672.8      20.1
 Planning
Inventory and        76,717.7     1,036.4     9,038.4        39.5     8,190.1       128.6     6,943.0       101.7     7,074.2       104.6     8,709.6     100.7    12,645.2     118.4
 Monitoring
Recreation Use      194,671.9     3,056.2    14,704.5        81.9    16,471.3       267.7    20,430.0       327.9    19,167.2       278.7    25,352.7     371.9    34,735.3     474.7
Wildlife and         80,557.1     1,205.1     7,964.8        36.2     8,072.2       119.3     5,898.6        75.2     6,996.0        92.1     9,533.1     130.6    12,605.7     153.8
 Fisheries
 Habitat
 Management
Rangeland            61,738.3       654.3     4,107.7        23.5     5,873.2        93.6     7,411.5       108.8     9,339.4       140.0     8,910.7     131.4     3,455.2      48.1
 Management
Forestland          231,772.9     4,027.1    15,549.0        79.7    20,005.5       310.0    15,815.7       246.8    10,708.3       166.6    16,429.5     232.5    40,098.5     571.5
 Management
Soil, Water and      43,195.7       563.8     3,824.2        21.6     6,352.3        61.0     4,123.1        47.4     6,408.8        87.9     4,263.6      51.2     6,519.0      75.2
 Air Management
Minerals and         33,002.3       467.1     3,327.4        23.9     5,483.4        78.6     2,803.6        40.0     2,751.7        37.8     6,437.3      82.5     4,424.2      56.8
 Geology
 Management
Land Ownership       54,198.9       763.6     8,992.1        67.3     6,223.7        94.4     5,675.9        75.9     4,830.7        68.9     4,601.6      62.9     7,127.4      90.5
 Management
Infrastructure       93,914.9     1,166.7     4,886.7        27.0    10,806.6       132.5     9,175.8       108.0     9,742.7       105.9     9,894.8     113.5    19,444.2     193.3
 Management
Law Enforcement      15,656.8        74.0     1,287.4         2.9     1,190.0         3.6     1,018.0         4.0     1,326.8         4.1     1,410.8       4.2     3,841.1      21.5
 Operations
General             239,448.5     2,805.5    35,147.7       192.0    22,600.6       304.0    20,300.3       247.1    21,416.7       263.5    22,888.4     307.3    36,542.3     327.1
 Administration
Fire                290,010.5     4,602.7    24,659.8       158.3    32,627.3       541.7    12,676.7       182.1    35,688.8       607.6    31,602.5     470.5   101,565.1   1,589.6
 Presuppression
 and Fuels
Fire Suppression    241,517.9     3,763.0    49,018.2        12.7    38,953.6       610.9    12,244.7       209.4    30,786.5       557.6    22,259.9     342.4     5,231.2     953.8
 and
 Rehabilitation
Facility             39,414.4       172.7       949.5         2.9     1,670.5         8.4     3,434.7        18.4     5,896.5        24.0     4,560.2      28.2     2,562.5      12.4
 Construction
Road Construction    70,466.8       871.7     5,536.5        27.8     6,923.4        77.4     5,215.2        50.9     7,152.2        61.8     6,202.4      70.2    10,915.0     106.5
Trail                21,543.4       278.1     1,103.5         2.9     3,530.0        36.6     3,567.6        27.7     2,366.6        41.5     2,340.1      34.3     3,843.6      40.0
 Construction
Land Acquisition     96,750.1       104.4    65,473.9         3.9     1,423.4         8.8     2,391.2         6.8     2,358.0         5.2     1,473.7       5.7     8,030.8      11.2
Range Betterment      7,339.3        35.3           0           0       350.7         3.3       589.0         6.7       719.2         5.6       913.6      13.1       163.0       2.5
 Fund
Gifts/Donations       1,206.3         4.6         8.1           0        29.3         0.3       106.0         2.0        19.7         0.0        46.9       0.4        76.2         0
 Forest Service
Recreation Fees         598.2        11.1           0           0        44.4         0.4        32.8         0.3        39.6         0.5        82.6       1.3        64.6       0.7
 for Collection
 Support
Timber Roads          1,279.3         4.0        19.2         0.3        40.7         0.1           0           0           0           0       104.7       1.3       478.5       0.5
 Purchaser
 Election
10 Percent Road      27,202.9       159.2           0           0     2,777.8        22.4     3,340.2        40.7     1,177.8         7.2     2,065.9       4.7     7,211.6      13.4
 and Trail Fund
Timber Salvage      124,814.3     2,340.8     4,286.4        30.5    28,370.7       473.3     6,393.8        99.7     1,174.2        18.8    12,477.4     203.0    19,797.9     331.3
 Sales Fund
Brush Disposal       13,234.6       292.8       590.4         3.2     3,335.6        59.1       243.2         4.3       275.6         4.8       708.6      11.9     4,703.1      78.6
 Fund
Licensee Programs        99.9           0        99.9           0           0           0           0           0           0           0           0         0           0         0
Restoration of        1,283.8         9.6           0           0        88.3         0.7        15.7         0.2         4.9           0        37.2       0.2     1,068.2       8.0
 Improvements
Quarters             17,528.4        66.4       101.0         1.4       537.3         5.8       422.4         2.9       493.8         5.3       680.7       6.5     1,573.0      13.7
 Maintenance
Recreation Fee       12,569.4       287.1           0           0       216.1         4.2       281.4         7.3     3,239.6        60.3       850.9      10.2     2,649.3      43.6
 Demonstration
Knutson-            115,490.7     1,799.1     3,797.4        27.0    15,408.0       216.8     4,929.1        67.5     2,698.1        39.9     5,216.4      65.9    32,186.0     366.9
 Vandenberg Fund
Cooperative Work-    38,924.5       454.4       398.1         3.3     4,679.7        33.1     3,600.6        51.8     2,208.2        17.7     4,098.0      31.5     8,195.8      78.3
 Other
Reforestaton         18,044.5       187.4       459.2         5.2     3,592.8        33.3       946.8        14.6       693.2        10.2     2,445.5      26.2     5,582.7      47.2
 Trust Fund
Natural Disaster     67,232.6       591.6           0           0     6,912.6        71.5       568.6         9.1           0           0     3,743.1      41.6    10,914.3     118.7
 Funding
Human Resources     119,321.9     3,035.0     2,575.6        24.4       623.9        53.7     1,099.5        79.7     1,714.0       132.1     2,042.8     159.5     2,932.4     224.0
Holding and          51,046.0      (12.7)    27,562.2           0       475.2           0       380.6         0.2     1,705.3           0     5,073.1         0       809.4       0.4
 Clearing
Reimbursable         72,891.0     1,081.1     4,961.6        38.1     1,808.4        73.8     1,442.8        31.6     6,828.5        58.4     6,523.5     101.7    11,092.4     266.9
 Activities
Transfer Funds       68,993.4       293.4     1,496.1        14.7     5,914.5        18.2     1,752.6         7.4     1,453.6         9.0     5,156.3      38.6    16,532.0      76.5
=====================================================================================================================================================================================
Total              $3,022,308    39,719.0  $333,668.4     1,118.3  $280,241.7     4,029.2  $177,484.0     2,413.9  $216,245.3     3,084.1  $250,133.8   3,360.5  $453,665.5   6,589.2
                           .9
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------

                                                                                                                     Northeastern Area
                     Pacific Northwest                                                                               State and Private
                           Region             Southern Region          Eastern Region          Alaska Region              Forestry          Research Stations     Job Corps Centers
                   ----------------------  ----------------------  ----------------------  ----------------------  ----------------------  --------------------  --------------------
                   Obligation              Obligation              Obligation              Obligation              Obligation              Obligation            Obligation
Budget line item            s        FTEs           s        FTEs           s        FTEs           s        FTEs           s        FTEs           s      FTEs           s      FTEs
-----------------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  ----------  --------  ----------  --------
Forest and              $63.8         1.3      $191.6         3.1         $ 0           0         $ 0           0      $240.9           0  $169,553.0   2,274.1         $ 0         0
 Rangeland
 Research
Forest Health         2,449.3        44.5    18,504.1        86.7         4.3         0.1       479.9        11.1    21,056.9         4.6     6,333.3      12.3           0         0
 Management
Cooperative           9,019.6        38.2    15,565.2        26.9         8.8         1.0       196.8         3.5    35,617.6       152.0     1,963.9      14.8           0         0
 Forestry
Emergency Pest           18.8         0.4        91.8         1.7           0           0         8.2         0.2       226.2           0           0         0           0         0
 Suppression
Land Management       2,672.5        58.4     5,421.9        78.5     2,329.3        26.4       982.1        21.2           0           0       202.8       4.3           0         0
 Planning
Inventory and         8,298.0       226.5     6,828.7        80.1     4,819.6        62.7     1,119.5        31.7       102.8         0.2     2,948.6      41.7           0         0
 Monitoring
Recreation Use       15,981.3       503.0    21,585.6       306.9    21,368.8       310.5     4,414.4       129.3       177.7         1.5       283.1       2.2           0         0
Wildlife and          7,042.8       237.6     8,951.5       126.2     8,310.0       106.2     3,710.4       109.2        67.0           0     1,405.0      18.7           0         0
 Fisheries
 Habitat
 Management
Rangeland            20,483.2        77.6     1,448.8        20.9       605.8         9.1         7.8         0.2        24.0           0        71.0       1.1           0         0
 Management
Forestland           41,598.1     1,194.3    37,279.7       590.7    25,192.4       392.5     8,342.1       234.6       189.0           0       565.1       7.9           0         0
 Management
Soil, Water and       3,247.5       108.0     3,406.6        42.4     3,184.8        36.8       931.3        25.7        45.0           0       889.5       6.6           0         0
 Air Management
Minerals and          1,971.9        59.6     2,731.1        37.9     2,205.8        26.8       812.6        22.6        26.0           0        27.3       0.6           0         0
 Geology
 Management
Land Ownership        3,245.2        99.3     6,007.6        89.4     6,139.2        80.1     1,213.7        33.9        41.3           0       100.5       1.0           0         0
 Management
Infrastructure        9,833.3       285.9    10,911.8        98.7     8,241.6        82.3       715.0        18.9       125.9         0.2       136.5       0.5           0         0
 Management
Law Enforcement       1,520.3        15.7     2,709.4        10.4     1,248.9         4.0        75.5         2.9           0           0        28.6       0.7           0         0
 Operations
General              15,908.9       376.7    24,958.0       257.1    17,979.2       217.9     4,603.0       113.6     1,186.2         0.2    16,041.5     199.0     (124.3)         0
 Administration
Fire                 21,498.8       710.7    17,847.2       210.5     8,531.3        93.9       514.5        15.4       138.4           0     2,506.1      19.7       154.0       2.7
 Presuppression
 and Fuels
Fire Suppression     10,084.5       461.3    60,929.5       458.6     9,252.3       112.4       141.1         4.7     1,162.2         0.8       557.9       7.8       896.3      30.6
 and
 Rehabilitation
Facility              4,062.5        19.7     6,362.8        27.5     4,979.9        15.2       388.1         8.7     2,335.7         3.1     2,211.5       4.2           0         0
 Construction
Road Construction     7,442.5       210.8     9,722.8       103.9     8,469.9        89.2     2,851.3        72.8         1.0           0        34.6       0.4           0         0
Trail                 1,085.3        37.0     1,839.2        22.9     1,353.4        16.6       505.3        18.5           0           0         8.8       0.1           0         0
 Construction
Land Acquisition        646.7        17.9     6,875.8        22.3     8,064.3        22.4           0           0           0           0        12.3       0.2           0         0
Range Betterment      4,603.2         4.1         0.6         0.0           0           0           0           0           0           0           0         0           0         0
 Fund
Gifts/Donations         796.5         1.1        16.3           0       103.9         0.8           0           0           0           0         3.4         0           0         0
 Forest Service
Recreation Fees          15.0         0.4       219.6         5.3        58.1         1.2        41.5         1.0           0           0           0         0           0         0
 for Collection
 Support
Timber Roads              6.0         0.2       416.0         0.3       166.8         0.2        47.4         1.1           0           0           0         0           0         0
 Purchaser
 Election
10 Percent Road         442.7        15.4     5,902.7        30.2     4,233.6        23.7        50.6         1.5           0           0           0         0           0         0
 and Trail Fund
Timber Salvage       29,509.5       861.2    14,668.0       170.6     7,464.6       129.1       671.8        23.3           0           0           0         0           0         0
 Sales Fund
Brush Disposal        3,350.7       130.3           0           0        27.4         0.6           0           0           0           0           0         0           0         0
 Fund
Licensee Programs           0           0           0           0           0           0           0           0           0           0           0         0           0         0
Restoration of            6.0         0.1         3.3           0        48.2         0.4         1.9           0           0           0        10.1         0           0         0
 Improvements
Quarters             13,101.9        23.8       273.4         2.0       151.3         1.5       110.2         3.5           0           0        72.8         0        10.6         0
 Maintenance
Recreation Fee        2,197.8        96.4     1,526.9        26.2     1,569.0        37.8        38.4         1.1           0           0           0         0           0         0
 Demonstration
Knutson-             20,689.3       655.0    21,367.2       245.8     9,026.4       108.0       172.8         5.8           0           0           0       0.5           0         0
 Vandenberg Fund
Cooperative Work-     3,312.7       111.6     4,710.6        46.4     2,151.1        20.2       231.0         9.2       726.0           0     4,617.7      51.3       (5.0)         0
 Other
Reforestaton                0           0     3,009.9        34.0     1,188.5        12.7       125.9         4.0           0           0           0         0           0         0
 Trust Fund
Natural Disaster     34,677.9       236.8     7,619.7        74.5     2,510.6        31.8       281.8         7.6           0           0         4.0         0           0         0
 Funding
Human Resources       1,721.2       142.6     9,816.4       784.6     5,165.9       381.5           0           0        78.4         1.8     1,061.3      78.1    90,490.5     973.0
Holding and          11,664.7      (14.4)     2,489.8         0.1       849.1           0           0           0         1.3           0      (12.9)       1.0        48.2         0
 Clearing
Reimbursable         15,511.9       154.4    19,088.2       206.5     1,110.1        43.8       168.6         5.8     1,736.5         5.9     2,618.4      94.2         0.1         0
 Activities
Transfer Funds        4,008.1       103.9     2,892.5        12.3     1,702.9         6.5    26,704.3         3.9     1,109.5           0       271.0       2.4           0         0
=====================================================================================================================================================================================
Total              $333,789.9     7,307.3  $364,191.8     4,342.1  $179,817.1     2,505.9   $60,658.8       946.5   $66,415.5       170.3  $214,526.7   2,845.4   $91,470.4   1,006.3
-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------

RECEIPTS GENERATED BY THE FOREST
SERVICE AND BUREAU OF LAND
MANAGEMENT, BY STATE, FISCAL YEAR
1998
========================================================= Appendix VII

States and territories                       BLM\a      Forest Service
------------------------------  ------------------  ------------------
Alabama                                    $39,239          $4,531,350
Alaska                                     558,912           7,280,366
Arizona                                  3,419,469           8,451,291
Arkansas                                         0          26,320,639
California                               4,132,133          75,893,847
Colorado                                 1,908,953          20,801,733
Connecticut                                      0                   0
Delaware                                         0                   0
District of Columbia                         5,137                   0
Florida                                          0           5,758,178
Georgia                                         75           1,313,247
Hawaii                                           0                   0
Idaho                                    3,003,495          49,879,975
Illinois                                         0           1,576,403
Indiana                                          0             553,176
Iowa                                             0                   0
Kansas                                           0           1,893,974
Kentucky                                         0           1,024,283
Louisiana                                        0           9,442,203
Maine                                            0             148,876
Maryland                                         0               9,740
Massachusetts                                    0                   0
Michigan                                       100          12,684,542
Minnesota                                      267           8,588,347
Mississippi                                  1,968          21,597,862
Missouri                                         0           4,948,132
Montana                                  3,426,035          41,466,663
Nebraska                                     3,832             149,041
Nevada                                  10,038,699           1,329,201
New Hampshire                                    0           2,194,099
New Jersey                                       0                   0
New Mexico                               4,537,905           3,459,315
New York                                         0               8,862
North Carolina                                   0           2,377,208
North Dakota                                47,711          12,175,849
Ohio                                             0              83,334
Oklahoma                                    42,732           6,024,310
Oregon                                  57,566,096         118,144,478
Pennsylvania                                     0          23,221,847
Rhode Island                                     0                   0
South Carolina                                   0           2,228,911
South Dakota                               171,960          14,883,654
Tennessee                                        0           1,307,423
Texas                                          986          22,821,294
Utah                                     3,676,772           6,121,507
Vermont                                          0           1,742,259
Virginia                                    80,865           3,069,416
Washington                                 367,658          24,454,996
West Virginia                                    0           7,777,234
Wisconsin                                   14,064           8,663,095
Wyoming                                  4,837,632           9,866,825
U.S. territories                                 0              97,635
======================================================================
Total                                  $97,797,231        $576,366,620
----------------------------------------------------------------------
\a BLM also has receipts of $42 million from mining claims, holding
fee collections, and receipts from fines, penalties, service charges,
and recovery fees that are not associated with a specific state. 

Source:  BLM and the Forest Service. 

OBJECTIVES, SCOPE, AND METHODOLOGY
======================================================== Appendix VIII

The Chairman, House Committee on the Budget, requested that we
provide (1) a comprehensive demographic and organizational profile of
two of the largest land management agenciesï¿½the Bureau of Land
Management and the Forest Service--including information about each
agency's managed lands; organizational mission, goals, structure, and
organizational roles and responsibilities; location, type, and number
of offices; activities and obligations; and receipts generated and
(2) observations on the major similarities and differences emerging
from this preliminary information. 

Because of the sheer volume of information presented about each of
the agencies, this report provides information on each agency
separately and concludes with observations on the major similarities
and differences of the agencies, which are based on their demographic
and organizational profiles.  Chapter 2 discusses the profile of BLM,
while chapter 3 provides the profile of the Forest Service.  Chapter
4 provides our observations on the major similarities and differences
and a discussion of joint BLM/Forest Service initiatives currently
under way.  The text of the report is supplemented by a series of
appendixes that provide detailed information dealing with BLM's and
the Forest Service's occupational job series; number, type, and
location of offices; description of the activities undertaken under
each budget category; obligations and full-time equivalents (FTEs);
and receipts generated. 

To obtain much of the information presented in this report, we relied
on agency publications such as manuals, budget justifications, and
annual reports.  In some instances, we asked the agency to provide us
with sufficient information that would allow us to prepare the
various segments of the demographic and organizational profiles.  In
other instances, we asked the agencies for the raw data and
reformatted the data to present the results. 

To determine the agencies' acreage and number of states in which
federal land is managed--we relied on agency publications.  We used
BLM's Public Land Statistics, 1998 and the Forest Service's Land
Areas of the National Forest System, 1997 (latest year available). 

To identify the missions, goals, organizational structure, and roles
of the various organizational levels, we relied primarily on
published agency documents such as budget justifications, agency
manuals, Government and Performance Review Act documents, annual
reports, and other agency publications to develop the information we
needed.  In the case of the roles of the Forest Service's various
organizational levels, no one document provided sufficient detail
that would adequately allow us to describe the relevance of the
offices and their operations.  Therefore, we asked the Forest Service
to provide us with a detailed description of these offices and their
roles. 

To determine the number of employees by occupational category, we
requested this information as of the end of fiscal year 1998 from
both agencies.  We then identified the official Office of Personnel
Management job series classifications and compared them with the
information provided by the agencies.  In some instances, the
agencies used titles slightly different from those of the official
Office of Personnel Management's titles, and, to the extent
practical, we reconciled this information.  The information presented
on job series requires some clarification.  Job series is the
position that a person is hired into or promoted into because the
applicant meets certain educational or job experience qualifications. 
Generally, a job series corresponds to a recognized occupation in the
federal service for a particular type of work.  However, a designated
job series may not necessarily reflect the position that the person
is actually working in.  For example, an employee may be working in
Personnel and be classified as a psychologist. 

To determine the number and types of field offices for both BLM and
the Forest Service, we relied on a number of sources.  We used the
agencies' records of locations, the agencies' telephone directories,
and Internet descriptions to arrive at a base line of each agency's
locations.  We then attempted to obtain from the agencies and minimal
direct verification, the latest address and Zip Code information as
well as the type of office included at that address.  We used the
address information to summarize, by state, the number and types of
locations as well as applied mapping techniques on the basis of Zip
Code information to develop some of the maps used in this report. 

Some limitations must be considered before using this location
information.  For example, both the Forest Service and BLM are in the
process of reorganizing their structure and/or number of field
locations.  We asked for the number and locations of field locations
as of the end of fiscal year 1998, but this has changed during fiscal
year 1999.  In addition, each agency collocates some of its offices
for economic or organizational needs, and, in some cases, this
information may not be reflected in the total number of locations
that we have listed.  For example, the Forest Service has work
centers where it may store and/or repair equipment needed in a
district.  In some cases, the work center may be on the same grounds
as the district office and not have a separate mailing address or it
may be located a few miles away but receive its mail at the district
office and thus not have a separate mailing address or Zip Code.  In
these cases, the work center would not be included as a specific
location in the total number of locations.  In addition, both the
Forest Service and BLM operate campgrounds or other recreational
facilities as part of its local field operations, and these
facilities may not have separate mailing addresses or Zip Codes. 
Most of the recreation trails and other scenic areas managed by these
agencies do not have specific addresses nor are they considered
separate organizational components and thus would not be considered
in our listing of offices.  In sum, both the Forest Service and BLM
are responsible for managing hundreds, if not thousands, of locations
that would not necessarily be considered an office where staff are
employed and hence would not be included in our information. 

To determine the agencies' activities, we relied on the agencies'
budget submissions and other agency documentation to identify the
activities performed under the various budget categories.  Although
we sought the agencies' concurrence that the activities listed for
each budget item were the most important activities, much more
information could have been prepared under each activity.  For
example, the agencies have program-specific manuals that provide
significant detail about the tasks and activities needed to perform a
certain program; therefore, several hundred more activities probably
could be listed for many of the activities included.  We provided the
most critical of the activities for each of the budget categories
identified. 

To determine the amount of obligations and FTEs for fiscal year 1998,
we asked each agency to provide us with this information for lower
organizational levels.  We asked that information by each budget line
item (Forest Service) or budget activity (BLM) be provided for each
component in the organization.  In the case of the Forest Service, we
requested that the information be provided on a forest-level basis
rather than for each of the district offices within each forest.  We
then reviewed the number of budget categories and arrived at 41 major
budget categories for each agency.  Both the Forest Service and BLM
actually have more than 41 budget categories but owing to the nature
of some of the categories, it was more meaningful to combine some of
the information.  For example, the Forest Service has four accounts
dealing with reimbursables that were very similar in the activities
undertaken.  Likewise, BLM actually has 10 budget activities under
the Helium program that are carried out at one location; we combined
these into one budget category because of the limited number of
locations where funds were expended.  Therefore, for ease of
presentation, we included all of the smaller budget categories into
larger, more meaningful categorizations.  Both BLM and the Forest
Service worked with us to combine the smaller budget categories for
presentation purposes. 

We then grouped the amounts obligated and the FTEs for the individual
field units into the larger agency unit.  For example, the various
Forest Service forests are grouped according to which region they are
part of, and BLM's various field units are grouped according to which
state office they report to.  The body of the report provides a
summarization of the information compiled, and the appendixes provide
a greater level of detail on the results of our analysis.  It should
be noted that the FTEs associated with the obligations are basically
a staff-year calculation and will not agree with the number of
employees in the job series information.  In addition, while both the
Forest Service and BLM account for personnel by FTE, each agency
computes this number slightly differently.  For example, the Forest
Service tracks all hours worked--regular and overtime--by permanent
and temporary employees and divides this amount by 2,080.  BLM, on
the other hand, considers 174 straight-time hours to constitute a
workmonth, and 12 workmonths to equal one FTE.  In other words, BLM
uses 2,088 straight hours as one FTE. 

To determine the amounts of receipts generated, we relied on BLM's
publication, Public Land Statistics, Fiscal Year 1998, and the Forest
Service's report, ASR-08, Gross Receipts by Class and County Based on
NF Acreage, Fiscal Year 1998, and ASR-13-2, Fiscal Year 1999 National
Grassland Statement of Receipts, for the receipts generated on BLM
lands, national forests, and grasslands.  These reports provide the
amounts of receipts generated by types as well as the states where
the receipts were generated. 

We did not independently verify the reliability of the financial data
provided nor did we trace the data to the systems from which they
came.  These systems were, in some cases, subject to audit procedures
by the U.S.  Department of Agriculture's Office of Inspector General
in connection with the Forest Service's financial statement audits. 
For fiscal years 1992 through 1998, the Office of Inspector General
reported that because of errors in field-level data and significant
internal control weaknesses in various accounting subsystems, the
Forest Service's accounting data were not reliable.  We chose to use
these data, however, since they were the only data available and were
the data that the agency uses to manage its programs.  BLM, on the
other hand, has received unqualified opinions on its financial
statements since 1995, and the data's reliability was not questioned
by the Department of the Interior's Office of Inspector General. 

We conducted our work from November 1998 through June 1999 in
accordance with generally accepted government auditing standards. 

*** End of document. ***