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How recreation permitting should work for you… instead of vice versa Recreation Permits on Public Lands Course #8300-14.

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Presentation on theme: "How recreation permitting should work for you… instead of vice versa Recreation Permits on Public Lands Course #8300-14."— Presentation transcript:

1 How recreation permitting should work for you… instead of vice versa Recreation Permits on Public Lands Course #


3 171

4 Special Area SRP

5 Content Review 2930 Manual Revisions and clarifications in the Manual and Handbook Walk through of permitting process, pre-application through evaluation Discuss FLREA public participation requirements Questions and group discussion

6 Objectives Upon completion, participants should be able to: Appreciate the uniqueness of Recreation permitting in BLM. Identify, locate and utilize current guidance. Administer, monitor and evaluate permits to achieve planned goals and objectives within a recreation program.

7 SRPs are Different from any other BLM use authorizations Recreation is a relatively new program in BLM. Mining laws 1866, 1872, Mineral Leasing Act Taylor Grazing Act ~3,000 public land laws since 1785

8 Trivia Question of the Morning What law, predating the Constitution of the United States, established the principle that lands in the west would fall under the jurisdiction of the central, Federal Government? This law is one of the earliest roots of the BLM. The Northwest Ordinance of 1787 was passed in July. US Constitution was not adopted until September.

9 Permitting by minerals, grazing, lands and timber: 1.Directed by statute, including qualifications of applicants and permit processing. 2.Existed in a Pre-NEPA, Pre-FLPMA, Pre-land use planning world. 3.Extensive history of litigation and court decisions. 4.Objective was to produce commodities, benefit the industry. Permittee is the end user. 5.BLM required to issue permits, leases, authorizations

10 Recreation in BLM 1.Classification and Multiple Use Act of Directs BLM, for the first time to assure a place for recreation. 2.FLPMA of 1976 directs that recreation is one of the principal or major multiple uses of public land. Provides no specific direction for authorizing use. Recreation permitting is more dependent on land use planning and program specific guidance than any other permitting in BLM!

11 Recreation Permits are Different! 1.No statute requires BLM to issue recreation permits or sets standards for applicants. 2.No law requires BLM to benefit the recreation industry. 3.Recreation permits produce experiences and outcomes, not commodities, not activities. 4.The permittee is not the end user of a commercial, competitive or organized group permit. 5.No other program permits the variety of activities.

12 Recreation Permits are Different! 6.SRPs are more discretionary than other programs permits. 7.Decisions on recreation permits rely more on ethical decision making than legalistic adjudication.

13 Planning SRPs not a separate activity. They are a means to implement recreation goals and objectives. Permits must serve the public interest. Make allocation decisions in LUP process, not one application at a time. Manual and Handbook

14 Field Office Recreation Program Special Designations Setting Prescriptions Travel and Transportation RMP Interpretation SRPs SRMA & ERMA RUP Sites Developed Sites Beneficial Outcomes ROS Visitor Center VRM OHV Designations Desired Experience Allocations

15 Field Office Recreation Program Special Designations Setting Prescriptions Travel and Transportation RMP Interpretation SRPs RMAs RUP SitesDeveloped Sites Beneficial Outcomes ROS Visitor Center VRM OHV Designations Desired Experience Goals & Objectives Supporting Actions Implementation Actions Allocations

16 Why we issue SRPs 1.Support recreation planning goals to provide experience and beneficial outcomes to the public. 2.Manage visitor use. 3.Provide for public health and safety. 4.Reduce user conflicts. 5.Reduce resource conflicts and damage. 6.Educate/communicate with the public. 7.Manage BLM workload. 8.Get a return for the commercial use of public land.

17 Sources of Information Regulations 43-CFR Manual and Handbook IMs & IBs IBLA Decisions All the above and more are in your course book! Appendix C, Land Use Planning Handbook Planning for Recreation and Visitor Services Manual 8320

18 Instruction Memos of Note WO IM (Youth Wilderness Therapy) WO IM (SRP Administration) WO IM (Update Directors minimum SRP fees) WO IM (Commercial disposal of cremated remains)

19 Instruction Memos of Note WO-IM (Temporary closures, including exclusive use SRPs under 43CFR 8364) WO-IM (Sage-Grouse) WO- IB (Audit tool kit) WO-IB (Appropriate use of fee revenue – overhead limited to 15%)

20 There is no shame in not knowing. The problem arises when irrational thought and attendant behavior fill the vacuum left by ignorance. --- Neil DeGrasse Tyson


22 2930 Manual Highlights 2930 Manual states FMs must: 1.Provide for recreation permits in RMP (including activities that would not be permitted!) 2.Ensure staff receive training. 3.Develop, implement, and monitor actions related to recreation permits.

23 General Recreation Permit Policy BLM Manual 2930 Permits and Permitted Use: A privilege to use public lands. Discretionary actions. Must serve the public interest. Supports management planning objectives and used to manage visitor use, protect resources, provide for health & safety.

24 Basic Guidance BLM Manual 2930 Focus on quality experience for current and future users. Results, not process. Achieve healthy ecosystems which provide settings for high quality experience. Resource dependent niche – unique to each area. Each office must identify niche within framework of a National role.

25 Outdoor recreation niches are: Authentic and unique. Described in superlatives. Significant regionally, nationally or internationally.


27 The Upshot If you have not done all items from the last few slides, your time would be better spent doing some recreation planning instead of administering permits!

28 Manual / Handbook Financial gain Includes all payments, donations, gratuity, bartering…… Multiyear Permits May be issued for recurring events. Re-enactments & Poker Rides Are by definition, recreational.

29 SRP Policy Guidance Manual / Handbook Waivers of SRPs and Fees Dont barter for volunteer work. None for educational, therapeutic or fundraising events. If it requires an SRP, it requires fee payment! Co-sponsorship of events Only when there is a clear, direct benefit to the public lands. BLM managers or staffs good feelings about an event. does not constitute a clear, direct benefit to public lands.

30 SRP Policy Guidance Manual / Handbook Statewide Permits Just say, No. Multi-jurisdictional permits are not done solely for permittee convenience.

31 SRP Policy Guidance Discount for time off Public Land Apply to all SRPs, not just commercial. May use % mileage or acreage for time. Deductions for pre/post travel and lodging Only for commercial clients. Basis for deductions and discounts established in the operating plan!

32 SRP Policy Guidance County Roads and Claimed Highways Events 100% on county road ROW do not usually need permits, however….. Most ROW are non-exclusive. BLM may require SRP if there is a concern for safety or resources. Un-adjudicated claims (RS-2477) are public lands and subject to SRP.

33 SRP Policy Guidance Public Advertising May indicate commercial activity but not by itself definitive. Always indicates organized activity. Permitted use by other programs Use authorized by another program (paleo, grazing, filming, etc.) that has a commercial recreation component also requires an SRP.

34 Processing an SRP Application Refer to page 18 of the Handbook.

35 Pre application consultation video here

36 Pre-application consultation Pre-application consultations are valuable to the applicant and to you. Your first opportunity to understand the proposal. Use this time to inform the applicant of everything you know you will require of them. Dont use the EA to figure out you are going to require toilets.

37 Pre-application consultation Advise applicant of any parts of their proposal that we will be difficult and provide options to avoid the difficult areas. Avoiding a problem is cheaper and easier than dealing with it. Give applicant the opportunity to provide materials including EA, cultural survey, etc.

38 Pre-Application & Cost Recovery Pre-application consultations are not subject to cost recovery. Explain how cost recovery works, the 50 hour threshold, what we charge for and what we dont. Explain how the account works and they will get back what we dont spend.

39 Policy Implementation and Clarifying SRP Guidance Revisions to Manual / Handbook Letters of Agreement May be used only for organized groups. Are not an authorization. An agreement that an SRP is not required. (No Federal Action; No NEPA required)

40 Organized Group SRPs Parameters for organized groups established in Land Use Plans. Any organized group may be required to obtain an SRP. Not every group requires an SRP. Based on agency discretion.

41 Example of Some Organized Group Criteria 1.Is use appropriate to the site? 2.Does it further recreation program objectives? 3.Is monitoring needed? 4.Health & Safety Concerns? 5.Bonding desirable for reclamation or damage to government property? 6.Insurance desirable to protect US? 7.Special services required such as law enforcement, fire protection, exclusive use?

42 Organized Groups – The bottom line If an organized group requires: –Stipulations –Monitoring –Bonding –Insurance –Special services… …Then it requires an SRP & SRP Fee

43 Film Permits and SRPs 1.Film permits may be incorporated into an SRP. 2.Film permits may be issued separately under 43 CFR If film permit is incorporated into the SRP, charge both the SRP fee and the filming rate schedule.

44 Considerations 1.Is the SRP holder responsible for the filming? 2.Is the filming at the invitation of the permittee? 3.Is a separate, independent film production company involved? 4.Is the filming so complex it really needs its own management? Film permit in the SRP?

45 Action Photo Business requires a permit! SRP under 2930? or Film permit under 2920? You decide – either one works

46 Vendor SRPs

47 Two types of vending 1.Vending associated with another SRP Typically with a large commercial or competitive event. If the permittee accepts responsibility for all vending; then vending may be included in the SRP. If not, each individual vendor must obtain a vending SRP.

48 Two types of vending 2.Vending not associated with a permitted event. Usually at a recreation attraction site like a sand dunes area. Vending should directly support or enhance the recreation experience. Must be appropriate to the settings prescriptions.

49 Vending at Attraction Sites Examples might be equipment rentals, shuttle services, fire wood sales etc. Consider impact of vending on established business in gateway communities. Sales of food, souvenirs, clothing and convenience items are seldom appropriate since they are not necessary for most outdoor recreation experience.

50 Vending at Attraction Sites Vending must be identified in recreation planning process. When you allow vending you are changing: The natural, social and managerial settings of the site. Your marketing of the site. Resulting in a change of experience, the visitors you attract, and those you displace or repel.

51 Form SRP Application

52 Require operating plans to support applications with detail to: 1.Fully understand the nature & scope of operations. 2.Establish revenue stream and basis for discounts and deductions. 3.Address public health and safety concerns (aka risk analysis and management). 4.Identify other permits, licenses required. 5.Address resource protection, LNT, Tread Lightly, etc. 6.Demonstrate activity proposed supports objectives.

53 Hot tip of the day! Have the operating plan give numbers of: Participants Spectators Staff Vehicles Animals etc. In a range – Maximum/minimum.

54 1.Does the plan reasonably address issues from previous slides and any others you want addressed? 2.Is the plan (especially health and safety) reasonable for the circumstances. Reasonable, not what BLM or some other permittee might do. 3.Does the risk analysis identify the inherent risks. 4.Does plan provide adequate basis to complete permit issuance, including NEPA and cost recovery determinations. 5.Plan within permittees capability? BLM Review of Operating Plans


56 (Because somebody will ask!) OMB Circular No. A-25, Revised 7/8/1993 – Cost recovery may be applied when the government provides a service that provides a special benefit to an identifiable recipient and that also provides a benefit to the general public. Federal Land Policy and Management Act (FLPMA) states: Secretary of the Interior is authorized to require reimbursement to the United States for reasonable costs with respect to applications and other documents relating to public lands.

57 Manual 1323: Cost Recovery for Reimbursable Projects/Activities IM Fiscal Year (FY) 2013 Indirect Cost Rate Handbook : Recreation Permit and Fee Administration Manual 2930: Recreation Permits and Fees (2007) IM Re-emphasize agency requirements for adequate administration of SRPs ( provides you guidance….)

58 BLM will charge cost recovery if permit administration exceeds 50 hours of work. Pre-application consultation is not subject to cost recovery. Charge only for items that directly benefit applicant and not the public at large or other projects you may have. The NEPA process will help identify mitigation or actions that need to be included in your cost recovery. If processing and administering permit will exceed 50 hours, cost recovery begins with the first hour.

59 For commercial permits exceeding 50 hours of time, cost recovery fees are charged in addition to the commercial use fees. For competitive or organized permits exceeding 50 hours of time, cost recovery fees are charged unless the use fees are expected to exceed the cost recovery fee. Cost recovery, including application fees may be charged to cover the costs of a permit lottery system, site reservation system, or special services for use of special areas. For multi-year permits, cost recovery applies in any year when the 50 hour threshold is exceeded. YOUR OBJECTIVE IS TO DEVELOP A GOOD FAITH ESTIMATE OF THE COST FOR THE BLM TO ADMINISTER THE EVENT.

60 Cost Recovery Estimate p. 1 of 2 Staffing Costs Primal Quest Employee Work Month Cost$/Hour Hours for EA Site Specific Survey Event Mon. Hours Post Event Mon.Total HoursCost Recreation Planner 1 (Moab FO)$6,086$ $3,371 Recreation Planner 2 (Price FO)$8,069$ $1,117 Archaeologist (PFO)$8,274$ $764 Wildlife Biologist 1 (MFO)$5,528$ $1,021 Wildlife Biologist 2 (PFO)$7,956$ $735 Riparian Specialist (PFO)$8,551$ $789 Hydrologist (PFO)$7,587$ $525 Botanist (MFO)$9,442$ $436 Labor Totals $8,759

61 Cost Recovery Estimate p. 2 of 2 Other Costs Vehicle Trip Cost Trips for EA Development Trips Event Mon. Trips Post Mon.Total # TripsCost Vehicle Trips $.30/mile x 120 miles per trip x # trips = $36/trip 77216$ Sub-total$9, % Indirect. Costs$1, Total Estimated Cost Recovery$10,949.61

62 Conduct pre-application meeting and review SRP application with applicant to determine if cost recovery will apply. Inform the applicant of the cost recovery estimate and allow them time to review and question any costs or tasks. At this point the applicant should be allowed the opportunity to proceed or withdraw the application. Develop a Cost Recovery Estimate (financial plan) Prepare a Cost Recovery Determination. Prepare a Cost Recovery Agreement for the applicant and the AO to sign.

63 Refer to the SRP Handbook for guidelines on amount and timeline for deposit of required funding. With 25 % down, periodic payment can be made as long as full payment is received prior to issuing permit. Once the required documents and funds are received by the BLM, proceed with opening the 5105 cost recovery project account. Forward Determination, Cost Recovery Agreement and Summary of Cost Recovery Estimate to applicant for signatures and request deposit to set up cost recovery account.

64 Any resource required to process and administer the event: Staff time Law enforcement coverage NEPA analysis and mitigation Pre-event, Event and Post-event monitoring Vehicle use Field Supplies specific to event File close-out

65 Direct costs are those for activities or services that benefit the applicants project and are easily traced to that project. Staff salary including fringe benefits, leave surcharge and overtime. Contract services such as consultants hired by BLM to work on project: Travel and per diem Field Supplies directly related to project NEPA documents Pre and post event course monitoring Vehicle use

66 Indirect costs are those for activities or services that benefit more than one project. Their precise benefits to the applicants project are difficult or impossible to trace. Do Not include items that can be considered indirect costs in your itemized cost recovery estimate since they are included in the indirect cost assessment by the NOC. Utilities Rent Administrative staff Maintenance Telephones Bulk purchase of supplies for general office use

67 Industry Grants (Yamaha) Third Party NEPA Preparation (Provide suggestions to keep costs down) Have several clubs combine resources to permit areas or routes Have applicant collect data if its appropriate Have applicant provide shapefiles instead of paper maps ??? Local businesses as partners ? Think outside the box!

68 Prepare CRA using standard templates from website The CRA will need to be signed by both the applicant and the authorizing officer. Purpose: Establish written agreement between the applicant and BLM for the cost recovery amount, what the applicant is paying for, and how BLM will spend and account for the money Language must be inserted to identify project as a full cost recovery account. This will allow you to ask for additional funds if necessary without modifying the agreement or making it appealable.

69 1) Form : Project/Subproject Number Assignment and Information Form 3) CBS Receipt for Deposit of cost recovery fees placed into suspense account 2) Cost Recovery Agreement signed by applicant and authorizing officer The following three items need to be submitted to the NOC through your state budget lead to establish a 5105 Cost Recovery Account.

70 Form

71 Your State Office budget lead will assign a WBS project code that is specific to your project when packet is sent to the NOC. Dont forget to have the Field Office budget tech transfer the funds from the suspense account into the new project account. Provide project staff the charge code for the project so they can begin work. Once account is set up:

72 All costs must be supported by documentation sufficient to establish that the costs were accurately determined and properly recorded. FORM Reimbursable Project Log All staff labor and reason for charges need to be documented on Form All completed forms become part of the official record and should be placed in the event file Forms are used to reconcile charges to the cost recovery account at close out Any labor charged to a cost recovery project needs to reflect hours on staff timesheets. The applicant may audit this documentation.

73 Account for what you spend

74 If account funds drop to 20% of original deposit, review remaining work and determine if additional funds will be required. Before requesting additional funds, review the labor and operation charges made to the account to ensure they are accurate Correct any errors or errant charges that may have been coded to the account and verify all charges are accurate. If necessary, inform the permittee that additional funding will be required to complete the permit administration. If additional funds will be needed to complete project, all work should stop until additional funds are received. ALL FUNDS MUST BE RECEIVED PRIOR TO ISSUING THE PERMIT

75 Remaining funds should be returned in a timely manner once the permit administration is complete. Follow the Refund Authorization overview instructions found at htpp:// Work closely with your budget tech or state budget lead since refund procedures may vary from state to state. Rule of thumb is to allow one month of account inactivity to ensure all charges have cleared.

76 Once you determine to close the account: Complete and submit the Collections and Billing Branch Refund and Cancellation Request form to the NOC. Dont forget to have the budget tech close the cost recovery account once FBMS shows the account balance is zeroed out. Notify the permittee that they will be receiving a refund shortly.

77 Primal Quest Final Report Staffing Costs EmployeeWork Month CostRate/Hr EA & Site Specific Survey Event Mon Post Event Mon.Total HoursCost Recreation Planner 1 (Moab FO) CHAD NIEHAUS$6,086$ $2,212 Recreation Planner 2 (Moab FO) KATIE STEVENS$5,720$ $2,046 Recreation Planner 3 (Moab FO) BILL STEVENS$5,998$ $2,042 Recreation Planner 4 (Price FO) DENNIS WILLIS$8,069$ $372 Recreation Planner 5 (Price FO) JAYNEE LEVY$8,069$ $652 Wildlife Biologist 1 (MFO) PAM RIDDLE$5,528$ $447 Botanist (MFO)$9,442$ $327 Labor Totals $8,099

78 Labor Totals $8,099 Other Costs Vehicle Trip Cost Miles Event Mon. Miles Post Mon. Total Mileag eCost Vehicle Trips $.30/mile x 120 miles per trip x # trips = $36/trip 963 $ Servicing of Swasey's Beach$ Sub-total$8, % Indirect cost$1,684 Total$10,231 Account Balance$1,592

79 Primal Quest and Eco-Challenge Both 500 mile adventure races in SE Utah. 350 competitors in teams of 5 Horses, hiking, biking, canyoneering, fixed rope climbing, kayaking and swimming. 40% over lap of the two courses. Similar seasons of use and race format. Helicopters and filming Primal Quest Cost Recovery - $10,231 Eco-Challenge Cost Recovery - $ 290,000 A Tale of Two Cost Recovery SRPs

80 Eco-Challenge 1995 EA 67 Pages 8 LE Staff for 560 hours + pd 18 monitors for 1,260 hours + pd Lots of OT Portions in WSA Monitoring report 11pp. Cost Recovery $190,000 ($290,000 in 2006 dollars) Primal Quest 2006 EA 10 pages No LE Staff, but they still showed up. 7 monitors for 197 hours. No pd. Very little OT Avoided WSA in pre- app. consultation. Monitoring report 40pp. Cost Recovery $10,231

81 NEPA and SRPs CEQ Regulations at 40 CFR (c) Ultimately, it is not better documents but better decisions that count. NEPAs purpose is not to generate paperwork-- even excellent paperwork – but to foster excellent action.

82 Reducing Paper Work and Delay CEQ 40 CFR Using the scoping process, identify issues and deemphasize issues that are not important Use tiering from statements of broad scope to those of narrower scope, eliminate repetitive discussions. Incorporating by reference. Use categorical exclusions.

83 NEPA Handbook Appendix 4 Categorical Exclusions H.Recreation Management 1. Issuance of Special Recreation Permits for day use or overnight use up to 14 consecutive nights; that impacts no more than 3 staging area acres; and/or for recreational travel along roads, trails, or in areas authorized in a land use plan. This CX cannot be used for commercial boating permits along Wild and Scenic Rivers. This CX cannot be used for the establishment or issuance of Special Recreation Permits for Special Area management (43 CFR ).

84 NEPA and Cost Recovery Use the scoping and screening process to help refine cost recovery: What subject matter experts are needed? What will be required for pre-event, event and post event monitoring. Special services – law enforcement, wild fire protection.

85 NEPA is your chance to: Demonstrate the permit would serve the public interest (Purpose and Need). Apply what you have learned from previous, similar types of activities. Develop relevant and effective stipulations. Provide a framework for monitoring.


87 INSURANCE – Anyone?

88 Why require insurance? 1.Protect USA from claims and litigation. 2.Protection of the public. 3.Protection of participants in event of harm. We do not require indemnification of third parties INSURANCE – ANYONE?

89 89 Insurance Documentation Minimum - official one-page document from insurance company -US Department of the Interior – BLM listed as additionally insured (never co-insured) -Permittee notify authorized officer 30 days prior to modification or termination -Matches time period for permitted event -Name of insured matches name on permit -Meets or exceeds minimum coverage.

90 Self Insured Organizations Typically an agency of the Federal or State Government. They do not purchase insurance nor cover 3 rd parties like BLM. We require: A letter from the risk manager or other authorized official stating they are aware of the SRP activity, it is an official function and they will stand behind it.

91 Bonding

92 1.Protects BLM from incurring costs of resource or facilities damage. 2.Tie to stipulations. 3.Pre and post event documented inspections. 4.Do not bond to protect 3 rd party interests.Bonding

93 Required for all permits. Good ones are: Relevant and Effective. Clearly worded declarative statement of what the permittee must do. Do or do not. There is no try. - Yoda Bind the permittee, not the BLM! Terms and Conditions of Approval, aka Stipulations

94 Able to be monitored for both compliance and effectiveness. Enforceable from a law enforcement perspective. Good Stipulations:

95 Terms and Conditions, Stipulations Where do they come from? Standard 13 from the Handbook page 40. Now printed on forms! Note: Reporting of death, injury or property damage >$2,500 has been changed to 24 hours. Administrative requirements – such as post use due dates, billing cycles, insurance, bonding…. SOPs, BMPs things like LNT and TL. Developed from NEPA mitigation measures. May tie to bonding /reclamations requirements.

96 Operating plans are incorporated by reference. Should not be restated in the Stipulations. DO NOT REPEAT LAWS, REGULATIONS or provide other, general information. Creating duty and standards for the BLM. Establishing health and safety standards for permittees. Let them do it in the operating plan. Terms and Stipulations What to Avoid

97 Form Permit

98 Current SRP Fees Minimum, annual SRP fee for all SRPs except for Special Area SRPs is $100. Minimum assigned/reserved site fee for commercial use is $200. These fees are in effect 3/1/11 through 2/28/2013. Minimum competitive and organized group fee is $5. per person, per day. See WO Instruction Memo

99 Audits of SRPs Random audits of a sample of permittees should be conducted regularly on a statewide level. Such reviews should, at a minimum, include an audit of revenues and visitor use. Independent auditors may be contracted to conduct such work. If payment or other discrepancies are found, BLM will make an effort to ensure proper payment or permit compliance.

100 Audits – Lessons Learned Under payment of SRP fees is a problem. Over payment is a problem, but much less so.

101 Revenue Loss to Utah BLM In Utah, a 10% sample revealed underpayment of $28,500. Over payments of $ were returned to permittees. Ratio of over to under payments: $154 to $1 Extrapolated statewide loss = $283,000

102 Audits – Lessons Learned BLM is inconsistent in application of policy. Basis for fee calculation is not documented in the permit or stips. Basis for deductions and discounts not documented in case file. Revenue stream is not documented. Sloppy record keeping by BLM and permittee.

103 Audits – Lessons Learned Billing system (CBS) not being used or used ineffectively. Collecting only the minimum fee up front and balance based on post use report. Confusion on net vs. gross. Various problems with insurance.

104 Organize you files if you have not already done so. Use a Database for tracking and communicating. Consider a simultaneous application period. Do things to make monitoring easier. Require marking of vehicles and equipment, pre-trip itinerary… Cross check itinerary with field reports and post use and audits. Some tips to help manage your SRP workload:

105 Monitoring SRPs

106 Before you go to the field: 1.Know what you are going to monitor. 2.Incorporate available information. 3.The metrics to be used. 4.How you are going to monitor – 100% audit? Sampling? Casual observation? 5.How monitoring will be documented and reported. If it does not create a record; it is not monitoring. An observation not documented is knowledge lost.

107 You Need a Monitoring Plan! 1.Identify stipulation, resources or other items to be monitored. 2.Identify metrics and techniques used for each item or stipulation. 3.Ideally design monitoring to check for both compliance and efficacy of stipulations. 4.Timing: Pre, Post and During 5.If sampling is to be used, identify the sampling size and technique, predetermined points, random GPS locations, every X occurrence, etc.

108 You Need a Monitoring Plan! continued 6. Assign specific jobs to specific staff! There was an important job to be done and Everybody was sure that Somebody would do it. Anybody could have done it, but Nobody did. Somebody got angry because it was Everybody's job. Everybody thought that Anybody could do it, but Nobody realized that Everybody wouldn't do it. It ended up that Everybody blamed Somebody when Nobody did what Anybody could have done.

109 7.Each staff member equipped with: Permit & Stips, NEPA documentation, monitoring plan, camera, tools, PPE. 8. Identify how monitoring is recorded, documented, analyzed and reported. 9. Identify who will receive copies of the monitoring report and the BLM reviewing official. 10. Use results in your next similar action. You Need a Monitoring Plan! continued

110 SPR Evaluations (page 47 of Handbook) 1.Every commercial, competitive SRP must have a performance evaluation at least annually. Your option for other permits. 2.No required form or format. Must be written and provided to permittee. 3.Three performance levels – Acceptable, probationary, unacceptable. 4.Unacceptable will result in suspension or termination of the permit.

111 Decisions, Protests and Appeals Objectives: Identify where corrective actions are required. Identify the correct action to take. Use proper procedures for criminal actions and civil decisions, protests and appeals.

112 What are Prohibited Acts? What are Prohibited Acts? Failure to obtain a required permit Pay the fee for a permit **Knowingly participating in event without permit** Violation of permit terms and conditions Littering Destroying vegetation Interfering with lawful users of public land Molesting livestock (w/o owners permission) See regulations for complete list See 43 CFR and 43 CFR 9200

113 What options are available in pursuing adverse action? Administrative Actions/Civil Criminal Actions Or Both

114 114 Violation Detected For Future Event If not resolved Civil Action Violation already occurred SRP regs RUP Regs Violator has a permit Violator has No permit Law Enforcement Decision Point Law Enforcement and/or Administrative Action -LE does not preclude additional admin actions -Admin actions do preclude taking LE actions Admin Actions Do nothing, but clarify your stipulation, etc Verbal or written warning Perform permit evaluation Place permit in probation or unacceptable perf status Prepare decision to suspend modify or cancel permit Optional Contact Organizers To Resolve Law Enforcement

115 Types of Administrative Actions Choose not take adverse action Verbal warning Letter of non-compliance Permit evaluation Suspension Decision to cancel or suspend permit.

116 116 Before you initiate an appealable action Be sure you can demonstrate: A violation actually occurred, Permittee was informed of conditions, and Permittee made a knowing and willful decision to violate these conditions

117 Decisions Issuance of a permit, denial of a permit, suspension or cancellation of a permit are all appealable decisions. Interlocutory decisions are not appealable. Decisions must detail the action being taken and the rational basis for the action. Do not include extraneous material. All claims in the decision must be supported by case file documentation

118 Decisions A decision is a nonfiction Story. All good stories: Have a beginning, middle and end. Are logically consistent. Resolve issues, questions and conflicts. Supported by evidence.

119 Decisions Writing style: active, declarative, descriptive, clear & concise, persuasive. Decision (BLMs action(s)), rationale (reasons), appeal procedures. Cites applicable regulations/stipulations. Decisions to reject future application is not supportable. IBLA Appeal procedures – use Form

120 APPEALS Under Title 43 CFR, Part 4 Notice of appeal must be sent to AO within 30 days Field office sends appeal, decision and case file to IBLA within 10 days Appellant files statement of reasons Decision to issue permit takes effect immediately. All final decisions of AO remain effectively pending appeal

121 Establishing or Changing Fees Any changes to fees for recreation use should be accompanied with public participation and outreach. Fees authorized by FLREA have very specific requirements, the topic of this discussion. Before going public, Business Plan must be reviewed by WO-250.

122 Public Participation in Recreation Fees Under FLREA Includes: Standard Amenity Fees, Expanded Amenity Fees and Special Area SRP Fees. Does Not Include Commercial, competitive, group SRP fees. Fees for National Reservation Services. Concessions contracts. Cost recovery.

123 New Fee Sites or Areas FR Notice published at least 6 months prior to implementation. Share with public a plan which includes: 1.Description of the new site/area. 2.Financial analysis including development, O&M cost, and income. 3.Analysis of public and private services in the vicinity that may compete. 4.Description of how you will tell public what you did with the money.

124 New Fees and Changes to Fees Use of RRACs FLREA provides for establishment of RRACs. May substitute an existing RAC. If Governor agrees, RRAC not necessary. RRAC meetings must be announced at one week prior in the Federal Register.

125 RRAC Roles & Responsibility RRACs must be consulted and may advise: 1.Establishment or change to standard, expanded or Special Area SRP fee. 2.Elimination of a standard or expanded amenity fee. 3.Expansion or limitation of a recreation fee program.

126 RRAC Roles & Responsibility RRACs are advisory. However, if the agency rejects a RRAC recommendation – The Secretary must file a report with House Resources and Senate Energy and Natural Resources Committees at least 30 days prior to implementing a decision.

127 Other Public Notification In addition to required notifications it is strongly recommended you: Reach out to the community of interest, be it a geographic, or user group community. Use your skills in community ecology! Package similar proposals for presentation to RRAC and public. Incorporate public participation at the planning rather than implementation phase. Use an index for routine adjustments and get buy off on the index instead of each adjustment

128 Public Notification of Fee Program Accomplishments Must be posted at the fee site or area. Included in periodic reports to Congress. In addition, you may: Post on office website. News releases, dedication ceremony for major accomplishments. Report to local tourism officials, local governance.

129 No one can go back and make a brand new start. Anyone can start now and make a brand new ending.

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