Deferred Maintenance of Federal Land Management Agencies: FY2013-FY2022 Estimates and Issues

Deferred Maintenance of Federal Land
November 30, 2021August 8, 2023
Management Agencies: FY2011-FY2020FY2013-FY2022
Carol Hardy Vincent
Estimates and Issues
Specialist in Natural Specialist in Natural
Resources Policy Resources Policy
Each of the four major federal land management agencies maintains tens of thousands of Each of the four major federal land management agencies maintains tens of thousands of
diverse
diverse assets, including roads, bridges, buildings, and water management structures. assets, including roads, bridges, buildings, and water management structures.
These agencies are the Bureau of Land Management (BLM), These agencies are the Bureau of Land Management (BLM), U.S. Fish and Wildlife Service Fish and Wildlife Service

(FWS), National Park (FWS), National Park Service (NPS), and Service (NPS), and U.S. Forest Service (FS). Congress and Administrations have continued to Forest Service (FS). Congress and Administrations have continued to
focus on the agencies’ deferred maintenance and repair of these assets—in essence, the cost of any maintenance or focus on the agencies’ deferred maintenance and repair of these assets—in essence, the cost of any maintenance or
repair that was not done when it should have been or was scheduled to be done. Deferred maintenance and repair repair that was not done when it should have been or was scheduled to be done. Deferred maintenance and repair
sometimes is called the sometimes is called the maintenance backlog. .
In In FY2020FY2022, the most recent year for which , the most recent year for which these estimates are available, the four agencies had combined deferred estimates are available, the four agencies had combined deferred
maintenance estimated at $maintenance estimated at $25.7835.53 billion. This figure includes approximately $ billion. This figure includes approximately $14.3721.09 billion ( billion (5659%) in deferred %) in deferred
maintenance for NPS, $maintenance for NPS, $5.86 7.66 billion (billion (2322%) for FS, $4.%) for FS, $4.0977 billion ( billion (1613%) for BLM, and $%) for BLM, and $1.462.02 billion (6%) for FWS. billion (6%) for FWS.
The estimatesEstimates reflect project costs. reflect project costs.
From From FY2011 to FY2020FY2013 to FY2022, total deferred maintenance for the four agencies increased in current dollars , total deferred maintenance for the four agencies increased in current dollars by $5.98
billion (30%), from $19.80 billion in FY2011 to $25.78 billion in FY2020. The estimates for BLM and NPS each
increased by more than $3 billion, with a smaller increase for FS and a decrease for FWS. In (i.e., amounts are not adjusted for inflation) by $15.95 billion (81%), from $19.58 billion in FY2013 to $35.53 billion in FY2022. The change among the four agencies differed considerably, from a $9.82 billion (87%) increase for NPS to relatively flat for FWS. BLM had the largest percentage increase—$4.03 billion (545%), and FS increased by $2.10 billion (38%) over the decade. In constant dollars (FY2022constant dollars
(FY2020 base year), total deferred maintenance for the four agencies increased over the 10-year period by base year), total deferred maintenance for the four agencies increased over the 10-year period by $2.61
$8.15 billion, from $billion, from $23.1727.38 billion to $ billion to $25.7835.58 billion ( billion (11%). Two 30%). Again, the change among the four agencies varied greatly. Two agencies had overall increases: $3.agencies had overall increases: $3.6274 billion ( billion (770363%) for %) for
BLM and $BLM and $1.455.33 billion ( billion (1134%) for NPS. Two agencies had overall decreases: $%) for NPS. Two agencies had overall decreases: $1.880.79 billion ( billion (5628%) for FWS and %) for FWS and
$0.59$0.11 billion ( billion (91%) for FS. %) for FS.
In both current and constant dollars, in each fiscal year In both current and constant dollars, in each fiscal year, NPS had the largest portion of total deferred maintenance NPS had the largest portion of total deferred maintenance
and FS had the second-largest share. FWS had the third-largest portion except in FY2020, when BLM moved
from the fourth to the third spot due to a relatively large increase in estimated deferred maintenance. Throughout
the past decade, the asset class that included roads comprised the largest portion of the four-agency combined
deferred maintenanceand considerably more than any other agency. FS consistently had the second-largest share. In both current and constant dollars, FWS had the third-largest portion of total deferred maintenance through FY2019; thereafter, BLM assumed the third spot, and FWS has had the smallest share. .
Congressional debate has focused on varied issues, including the level and sources of funds needed to reduce Congressional debate has focused on varied issues, including the level and sources of funds needed to reduce
deferred maintenance, whether agencies are using existing funding efficiently, how to balance the maintenance of deferred maintenance, whether agencies are using existing funding efficiently, how to balance the maintenance of
existing infrastructure with the acquisition of new assets, whether disposal of assets is desirable given limited existing infrastructure with the acquisition of new assets, whether disposal of assets is desirable given limited
funding, and the priority of maintaining infrastructure relative to other functions.funding, and the priority of maintaining infrastructure relative to other functions. Congress enacted P.L. 116-152,
the Great American Outdoors Act, with up to $1.9 billion in new mandatory spending for deferred maintenance of
the four agencies (and the Bureau of Indian Education) for each of FY2021-FY2025. This funding potentially
could impact deferred maintenance estimates for FY2021 or subsequent years.
Some question why deferred maintenance estimates have fluctuated over time. These fluctuations Deferred maintenance fluctuations over time are likely the are likely the
result of many factors, among them the following: result of many factors, among them the following:
• Agencies have Agencies have refinedaltered methods of defining and quantifying the maintenance needs of their assets. methods of defining and quantifying the maintenance needs of their assets.
• Levels of funding for maintenance, including funding to address the maintenance backlog, vary Levels of funding for maintenance, including funding to address the maintenance backlog, vary
from year from year to year. Economic conditions, including costs of services and products, also fluctuate. to year. Economic conditions, including costs of services and products, also fluctuate.
• The asset portfolios of the agencies change, with acquisitions and disposals affecting the number, The asset portfolios of the agencies change, with acquisitions and disposals affecting the number,
type, type, size, age, and location of agency assets. size, age, and location of agency assets.
The extent to which these and other factors affected changes in each agency’s maintenance backlog over the past The extent to which these and other factors affected changes in each agency’s maintenance backlog over the past
decade is not entirely clear. In some cases, comprehensive information is not readily available or has not been decade is not entirely clear. In some cases, comprehensive information is not readily available or has not been
examined.
examined. The Great American Outdoors Act (GAOA, P.L. 116-152) provided a new source of funding to address deferred maintenance, with up to $1.9 billion in mandatory spending for the four agencies (and the Bureau of Indian Education) for each of FY2021-FY2025. The agencies have cited GAOA appropriations as likely leading to less deferred maintenance, although the precise change is uncertain currently. Among other reasons, agencies continue to obligate and manage appropriations for projects, generally remove an asset’s deferred maintenance from their total when work is completed, and are expected to receive appropriations through FY2025 and to continue work on some projects for several years thereafter. The impact of GAOA appropriations also likely depends on the agencies’ effectiveness in managing appropriations. Congressional Research Service Congressional Research Service

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Contents
Introduction ..................................................................................................................................... 1
Deferred MaintenancesMaintenance Estimates ..................................................................................................... 2
FY2020FY2022 ...................................................................................................................................... 3
Overview of Decade (FY2011-FY2020FY2013-FY2022) ................................................................................... 4
Changes in Estimates in Current and Constant Dollars ...................................................... 4
Agency Shares of Deferred Maintenance in Current and Constant Dollars ....................... 78
Issues in Analyzing Deferred Maintenance ..................................................................................... 9 10
Methodologies Used by Agencies ............................................................................................. 9
Funding Amounts and Impacts ................................................................................................. 11
Asset Number, Condition, Acquisition, and Disposal ............................................................. 13

Figures
Figure 1. Change in Deferred Maintenance by Agency in Current Dollars,
FY2011-FY2020 11 NPS Construction-Related Costs ....................................................................................... 11 Roads ................................................................................................................................. 11 Other Factors ..................................................................................................................... 13 Funding ................................................................................................................................... 14 Great American Outdoors Act, P.L. 116-152 .................................................................... 14 Impacts of Funding ........................................................................................................... 15 Alternatives to Funding..................................................................................................... 17 Asset Number, Condition, Acquisition, and Disposal ............................................................. 6
17 Figures Figure 21. Change in Deferred Maintenance by Agency in Constant Dollars,
FY2011-FY2020Federal Land Management Agency in Current Dollars, FY2013-FY2022 .......................................................................................................................... 6
Figure 3. Deferred Maintenance Total by Agency in Current Dollars, FY2011-FY2020 ............... 8
Figure 4. Deferred Maintenance Total by Agency in FY2020 Constant Dollars,
FY2011-FY2020 ............................... 7 Figure 2. Change in Deferred Maintenance by Federal Land Management Agency in Constant Dollars, FY2013-FY2022 ............................................................................................. 7 Figure 3. Deferred Maintenance Total by Federal Land Management Agency in Current Dollars, FY2013-FY2022 ............................................................................................................. 9 Figure 4. Deferred Maintenance Total by Federal Land Management Agency in FY2022 Constant Dollars, FY2013-FY2022 ........................................................................................... 810

Tables
Table 1. Estimated Deferred Maintenance by Agency in Current Dollars,
FY2011-FY2020FY2013-FY2022 .......................................................................................................................... 5
Table 2. Estimated Deferred Maintenance by Agency in Constant Dollars,
FY2011-FY2020FY2013-FY2022 .......................................................................................................................... 56

Contacts
Author Information ........................................................................................................................ 1419

Congressional Research Service Congressional Research Service

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Deferred Maintenance of Federal Land Management Agencies

Introduction
Each of the four major federal land management agencies has maintenance responsibility for tens Each of the four major federal land management agencies has maintenance responsibility for tens
of thousands of diverse assets in dispersed locations. These agencies are the Bureau of Land of thousands of diverse assets in dispersed locations. These agencies are the Bureau of Land
Management (BLM), Management (BLM), U.S. Fish and Wildlife Service (FWS), and National Park Service (NPS), all Fish and Wildlife Service (FWS), and National Park Service (NPS), all
within the Department of the Interior (DOI), and the within the Department of the Interior (DOI), and the U.S. Forest Service (FS), within the Department Forest Service (FS), within the Department
of Agriculture. These agencies maintain assets to preserve their functioning and to repair and of Agriculture. These agencies maintain assets to preserve their functioning and to repair and
replace components as needed (see text box below). replace components as needed (see text box below).
Number and Type of Federal Land Management Agency Assets
The most recent available data from the four major federal land management agencies on assets they manage The most recent available data from the four major federal land management agencies on assets they manage
include the fol owing: include the fol owing:

In FY2018, the • Bureau of Land Management (BLM) (BLM) managed 45,871manages over 47,000 assets, including 4, assets, including 4,335446 buildings, buildings,
18,90818,915 roads, roads, and 23,641 otherand 22,628 structures. structures.

In FY2018, the • National Park Service (NPS) (NPS) managed 76,039manages over 75,000 assets, including 25, assets, including 25,073163 buildings; 3, buildings; 3,690
661 housing units; housing units; 1,6571,421 campgrounds; 6, campgrounds; 6,273244 trails; 1, trails; 1,831767 wastewater systems; 1, wastewater systems; 1,530578 other water systems; 5, other water systems; 5,537
664 unpaved roads; unpaved roads; 11,96111,988 paved roads; and paved roads; and 18,696 other assets. The NPS FY2022 budget justification reflected a
similar figure of over 76,000 assets in total.

In FY2020, the 17,737 other assets. • Fish and Wildlife Service (FWS) (FWS) managedmanages over over 4441,000 assets, including ,000 assets, including 6,4005,300 buildings; buildings;
17,50018,000 roads, bridges, and trails; 8, roads, bridges, and trails; 8,700500 water management assets; and water management assets; and 11,4009,500 other real property assets. other real property assets.

In FY2020, the • Forest Service (FS) (FS) managed nearly 30,000 recreation facilities; more than 39,000 buildings;
more than 370,000 miles of roads, nearly 65,000 miles of which were operated for passenger vehicles; nearly
160,000 miles of trails; more than 13,000 road manages over 92,000 assets of the fol owing types: 30,000 recreation sites; more than 39,000 buildings; more than 14,000 road bridges and trail bridges; more than 4,and trail bridges; more than 4,700600 drinking water systems; drinking water systems;
more than 4,700 wastewater systems; and nearly 500 agency-owned dams.more than 4,700 wastewater systems; and nearly 500 agency-owned dams.
Sources: BLM and NPS data for FY2018 from CRS discussions with U.S. Department of the Interior (DOI),
Office of Budget, on April 22, 2019. For NPS, see also DOI, NPS, Budget Justifications and Performance
Information, Fiscal Year 2022, p. ONPS-66, at https://www.doi.gov/budget/appropriations/2022. FWS data for
FY2020 from DOI, FWS, Budget Justifications and Performance Information, Fiscal Year 2022, p. NWRS-22, at
https://www.doi.gov/budget/appropriations/2022. Most FS data from U.S. Department of Agriculture (USDA),
FS, FY2022 Budget Justification, p. 83, at https://www.fs.usda.gov/about-agency/budget-performance; FS data on
roads operated for passenger vehicles from CRS discussions with USDA, FS, Legislative Affairs Office,
September 21, 2021.
Notes: CRS has not obtained the size, age, or location of each asset. For example, CRS has not obtained the
square footage for the buildings or the size of the water systems and thus did not analyze the deferred
maintenance relative to the size of each agency’s assets FS also manages nearly 163,000 miles of trails and more than 372,000 miles of roads, nearly 65,000 miles of which were operated for passenger vehicles. Sources: For BLM, NPS, and FWS, U.S. Department of the Interior, Office of Budget, May 31, 2023. For FS, U.S. Department of Agriculture, FS, Legislative Affairs Office, May 9, 2023. Notes: Data represent the most recent available: September 30, 2022, for NPS and FS; spring 2023 for BLM and FWS. .
The infrastructure needs of the federal land management agencies have been a subject of The infrastructure needs of the federal land management agencies have been a subject of
significant federal and public attention for many years. Congressional and administrative federal and public attention for many years. Congressional and administrative
attention has focused on attention has focused on deferred maintenance and repairs, defined as “maintenance and repairs , defined as “maintenance and repairs
that were not performed when they should have been or were scheduled to be and which are put that were not performed when they should have been or were scheduled to be and which are put
off or delayed for a future period.”1 off or delayed for a future period.”1 “Maintenance and repairMaintenance and repair” include a variety of activities include a variety of activities
intended to preserve assets in an acceptable condition, including activities such as preventive intended to preserve assets in an acceptable condition, including activities such as preventive
maintenance and replacement of parts, systems, and components. These terms do not include maintenance and replacement of parts, systems, and components. These terms do not include
activities intended to expand the capacity of assets to allow them to serve different purposes or activities intended to expand the capacity of assets to allow them to serve different purposes or
significantly increased needs.2 significantly increased needs.2

Deferred maintenance and repairs often are called the maintenance backlog. The federal land management agencies assert that continuing to defer the maintenance and repair of facilities accelerates the rate of these facilities’ deterioration, increases their repair costs, and decreases their value. Similarly, the U.S. Government Accountability Office (GAO) has reported that “deferring needed maintenance and repair may ultimately result in significantly higher 1 This definition is taken from the Statement of Federal Financial Accounting Standards 42: Deferred Maintenance and 1 This definition is taken from the Statement of Federal Financial Accounting Standards 42: Deferred Maintenance and
Repairs, p. Repairs, p. 14431442 (pdf) of the (pdf) of the FASAB Handbook of Federal Accounting Standards and Other Pronouncements, as
Amended, , as of June 30, 2022, available on the website of the Federal Accounting Standards Advisory Board at https://files.fasab.gov/available on the website of the Federal Accounting Standards Advisory Board at https://files.fasab.gov/
pdffiles/pdffiles/2021_2022_%20FASAB_%20Handbook.pdf. %20FASAB_%20Handbook.pdf.
2 Ibid., p. 2 Ibid., p. 14431442. .
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Deferred maintenance and repairs often are called the maintenance backlog. The agencies assert
that continuing to defer the maintenance and repair of facilities accelerates the rate of these
facilities’ deterioration, increases their repair costs, and decreases their value.maintenance, repair, and operating costs, or premature replacement.”3 Debate has focused Debate has focused
on varied issues, including the level of funds needed to reduce deferred maintenance, whether on varied issues, including the level of funds needed to reduce deferred maintenance, whether
agencies are using existing funding efficiently, the priority of deferred maintenance relative to agencies are using existing funding efficiently, the priority of deferred maintenance relative to
regular maintenance, and regular maintenance, and whether additional sources of funds should be directed to maintenance.3
the effect of a relatively new source of mandatory funding on deferred maintenance.4 Other issues include how to balance the maintenance of existing infrastructure with the Other issues include how to balance the maintenance of existing infrastructure with the
acquisition of new assets, whether disposal of assets is desirable given limited funding, and how acquisition of new assets, whether disposal of assets is desirable given limited funding, and how
much to prioritize maintaining infrastructure relative to other government functions. much to prioritize maintaining infrastructure relative to other government functions.
AnotherThese varying issues depend on reliable estimates of deferred maintenance. Thus, a key issue relates to the dollar amount of deferred maintenance and the reasons for issue relates to the dollar amount of deferred maintenance and the reasons for
fluctuations over time. This report focuses on these issues. It first provides agency deferred fluctuations over time. This report focuses on these issues. It first provides agency deferred
maintenance estimates for maintenance estimates for FY2020FY2022, the most recent fiscal year for which this information is , the most recent fiscal year for which this information is
available. It next discusses changes in deferred maintenance estimates over 10 years, available. It next discusses changes in deferred maintenance estimates over 10 years, FY2011-
FY2020.4FY2013-FY2022.5 It then identifies some of the factors that likely contributed to these changes. It then identifies some of the factors that likely contributed to these changes.
Deferred MaintenancesMaintenance Estimates
The agencies typically identify deferred maintenance through periodic condition assessments of The agencies typically identify deferred maintenance through periodic condition assessments of
facilities.facilities.56 For For FY2020FY2022, FS reported an annual deferred maintenance dollar total composed of , FS reported an annual deferred maintenance dollar total composed of
estimates for estimates for 1011 classes of assets. These classes include roads, buildings, trails, and drinking classes of assets. These classes include roads, buildings, trails, and drinking
water systems, among others.water systems, among others.67 DOI agencies currently report annual deferred maintenance DOI agencies currently report annual deferred maintenance
composed of estimates for four broad categories of assets: (1) roads, bridges, and trails; (2) composed of estimates for four broad categories of assets: (1) roads, bridges, and trails; (2)
irrigation, dams, and other water structures; (3) buildings; and (4) other structures. The “other irrigation, dams, and other water structures; (3) buildings; and (4) other structures. The “other
structures” category includes a variety of assets (e.g., recreation sites and hatcheries). structures” category includes a variety of assets (e.g., recreation sites and hatcheries).
For each of the 10 years covered by this report, FS reported the amount of deferred maintenance For each of the 10 years covered by this report, FS reported the amount of deferred maintenance
as a single figureas a single figure rather than a range, as DOI agencies had done prior to FY2015. DOI agencies . DOI agencies
began reporting deferred maintenance as a single figure in FY2015.began reporting deferred maintenance as a single figure in FY2015.78 Prior to FY2015, DOI Prior to FY2015, DOI
agencies reported estimates as a range. For FY2014, for instance, the range had an “accuracy agencies reported estimates as a range. For FY2014, for instance, the range had an “accuracy
level of minus 15 percent to plus 25 percent of initial estimate.”level of minus 15 percent to plus 25 percent of initial estimate.”89 According to DOI, a range was According to DOI, a range was
used because, “due to the scope, nature, and variety of used because, “due to the scope, nature, and variety of the assets entrusted to DOI, as well as the
nature of deferred maintenance itself, exact estimates are very difficult to determine.”9

3 Beginning in FY2021, 3 U.S. Government Accountability Office (GAO), Federal Real Property: Agencies Attribute Substantial Increases in Reported Deferred Maintenance to Multiple Factors, GAO-23-106124, October 28, 2022, p. 2, at https://www.gao.gov/assets/gao-23-106124.pdf. Hereinafter cited as GAO-23-106124. 4 P.L. 116-152, the Great American Outdoors Act, provided a new source of mandatory funding P.L. 116-152, the Great American Outdoors Act, provided a new source of mandatory funding
for deferred for deferred maintenancemaintenance for FY2021-FY2025, as discussed in the “Issues in Analyzing Deferred Maintenance” section of this report. , as discussed in the “Issues in Analyzing Deferred Maintenance” section of this report.
4 5 In this report, the 10-year period from In this report, the 10-year period from FY2011 to FY2020FY2013 to FY2022 is sometimes referred to as a is sometimes referred to as a decade. .
56 For a brief description of Forest Service (FS) condition assessments, see U.S. Department of Agriculture (USDA), For a brief description of Forest Service (FS) condition assessments, see U.S. Department of Agriculture (USDA),
20202022 Agency Financial Report, pp. , pp. 186-188155-157, at https://www.usda.gov/sites/default/files/documents/fy-2022-agency-financial-report.pdf. For a brief description of U.S. Department of the Interior (DOI) condition . For a brief description of U.S. Department of the Interior (DOI) condition
assessments, see DOI, assessments, see DOI, Agency Financial Report 20202022, p. p. 141.
6 For FY2020, the 10139, at https://www.doi.gov/sites/doi.gov/files/doi-fy2022-afr-508c.pdf. 7 For FY2022, the 11 asset classes were buildings, asset classes were buildings, communication systems, dams, drinking water systems, heritage, dams, drinking water systems, heritage, minor constructedminor construction features, features,
road bridges, roads, trail bridges, trails, and wastewater systems. This information was provided to CRS by the FS road bridges, roads, trail bridges, trails, and wastewater systems. This information was provided to CRS by the FS
Legislative Affairs Office on Legislative Affairs Office on June 10, 2021.
7April 6, 2023. 8 The change to a single figure resulted from revisions to federal financial accounting standards that took effect in The change to a single figure resulted from revisions to federal financial accounting standards that took effect in
FY2015. See the Statement of Federal Financial Accounting Standards 42: Deferred Maintenance and Repairs, in the FY2015. See the Statement of Federal Financial Accounting Standards 42: Deferred Maintenance and Repairs, in the
FASAB Handbook of Federal Accounting Standards and Other Pronouncements, as Amended, available on the website , available on the website
of the Federal Accounting Standards Advisory Board at https://files.fasab.gov/pdffiles/of the Federal Accounting Standards Advisory Board at https://files.fasab.gov/pdffiles/
2021_2022_%20FASAB_%20Handbook.pdf. %20FASAB_%20Handbook.pdf.
89 DOI, DOI, Agency Financial Report, FY2014, p. 126, p. 126.
9 Ibid, p. 126, at https://www.doi.gov/sites/doi.gov/files/doi-fy-2014-afr.pdf. .
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the assets entrusted to DOI, as well as the nature of deferred maintenance itself, exact estimates are very difficult to determine.”10 FS estimates of deferred maintenance included in this reportFS estimates of deferred maintenance included in this report for FY2013-FY2015 were taken from the agency’s annual were taken from the agency’s annual
budget justifications to Congressbudget justifications to Congress for FY2011-FY2015.10 The Forest Service.11 The FS Legislative Affairs Legislative Affairs
Office provided the Congressional Research Service (CRS) with estimates for FY2016-Office provided the Congressional Research Service (CRS) with estimates for FY2016-FY2020.
FY2022.12 The DOI Budget Office provided CRS with a deferred maintenance range for each DOI agency The DOI Budget Office provided CRS with a deferred maintenance range for each DOI agency
for each fiscal year from FY2011 to for FY2013-FY2014. From these ranges, CRS calculated mid-range FY2014. From these ranges, CRS calculated mid-range
figures. For instance, DOI estimated NPS deferred maintenance for FY2014 at between $9.31 figures. For instance, DOI estimated NPS deferred maintenance for FY2014 at between $9.31
billion and $13.70 billion. The CRS-calculated mid-range figure is $11.50 billion.billion and $13.70 billion. The CRS-calculated mid-range figure is $11.50 billion.1113 This report This report
reflects CRS’s mid-range calculations for reflects CRS’s mid-range calculations for FY2011FY2013-FY2014 to facilitate comparison with FS -FY2014 to facilitate comparison with FS
estimates.estimates.1214 Since FY2015, the DOI Budget Office has provided CRS with a single estimate for Since FY2015, the DOI Budget Office has provided CRS with a single estimate for
each DOI agency, and those figures are used in this report. For both each DOI agency, and those figures are used in this report. For both the DOI agencies and DOI agencies and the FS, the FS, the
figures represent deferred maintenance as of the end of the fiscal year (i.e., September 30).figures represent deferred maintenance as of the end of the fiscal year (i.e., September 30).1315 Also, Also,
they generally reflect project costs.they generally reflect project costs.1416 Finally, totals shown in the body and in tables of this report Finally, totals shown in the body and in tables of this report
may not add to 100% due to rounding. may not add to 100% due to rounding.
FY2020FY2022
The four agencies had combined The four agencies had combined FY2020FY2022 deferred maintenance estimated at $ deferred maintenance estimated at $25.7835.53 billion. billion.1517 The The
agencies had widely varying shares of the total. NPS had the largest portion, agencies had widely varying shares of the total. NPS had the largest portion, 5659%, based on an %, based on an
estimate of $estimate of $14.3721.09 billion. billion.1618 The FS share was The FS share was 2322% of the total, with an estimated deferred 10 Ibid, p. 126. 11 For instance, the FY2015 deferred maintenance estimate was taken from USDA, FS, Fiscal Year 2017 Budget Justification, p. 411, at https://www.fs.usda.gov/sites/default/files/fy-2017-fs-budget-justification.pdf. 12 The FS Legislative Affairs Office provided the FY2022 estimate to CRS on April 6, 2023. The FY2022 estimate is the most recent available. 13 CRS calculated this mid-range figure as the average of the high and low estimates. 14% of the total, with an estimated deferred
maintenance of $5.86 billion. The BLM portion was 16%, based on a backlog estimate of $4.09
billion. The FWS had the smallest share, 6%, reflecting the agency’s deferred maintenance of
$1.46 billion.
Each agency’s deferred maintenance estimate for FY2020 consisted of various components. For
FS, the single largest asset class was roads, which comprised 60% of the FY2020 total of $5.86
billion. The next largest asset class was buildings, which represented 22% of the FS FY2020
total. The next two largest asset classes were road bridges, with 6% and trails, with 5%. Six other
asset classes made up the remaining 8%.
For NPS, the largest asset category was roads, bridges, and trails, which comprised 57% of the
FY2020 deferred maintenance total of $14.37 billion. The other structures category comprised
20% of the total, followed by 16% for buildings, and 7% for irrigation, dams, and other water
structures.
Roads, bridges, and trails also reflected the largest share of BLM’s FY2020 deferred
maintenance, with 88% of the $4.09 billion total. Three other categories of assets had relatively

10 For instance, the FY2015 deferred maintenance estimate was taken from USDA, FS, Fiscal Year 2017 Budget
Justification, p. 411, at https://www.fs.fed.us/about-agency/budget-performance.
11 CRS calculated this mid-range figure as the average of the high and low estimates.
12 In addition, policy discussions of agency deferred maintenance commonly have referred to a single mid-range In addition, policy discussions of agency deferred maintenance commonly have referred to a single mid-range
estimate, as shown in this report. estimate, as shown in this report.
1315 The DOI Budget Office has provided deferred maintenance information to CRS periodically throughout the decade. The DOI Budget Office has provided deferred maintenance information to CRS periodically throughout the decade.
These estimates are generallyDOI provided the FY2022 estimate to CRS on March 27, 2023. The FY2022 estimate is the most recent available. The DOI estimates provided to CRS generally are based on DOI financial reports and may differ from figures reported by the agencies based on DOI financial reports and may differ from figures reported by the agencies
independently. In particular, in some years the National Park Service (NPS) has independently reported estimates that independently. In particular, in some years the National Park Service (NPS) has independently reported estimates that
differ from those reflected in agency financial reportsdiffer from those reflected in agency financial reports, as they have included. These NPS estimates have included certain concessioner owned or operated assets as well as assets that are not owned by the NPS but assets that are not owned by the NPS but
for which the agency has maintenance responsibility. for which the agency has maintenance responsibility.
1416 Estimates do not reflect indirect costs, such as salaries and benefits for government employees. Estimates do not reflect indirect costs, such as salaries and benefits for government employees.
1517 For comparison, the four agencies combined had For comparison, the four agencies combined had FY2020FY2022 regular discretionary appropriations of regular discretionary appropriations of $13.85roughly $14 billion billion and FY2022and
FY2020 total budget authority (including total budget authority (including emergency appropriationssupplemental, emergency, and mandatory appropriations) of roughly $27 billion. 18 Some NPS sources show a higher FY2022 deferred maintenance estimate. For instance, an estimate of $22.29 billion is contained in the NPS Budget Justifications and Performance Information, Fiscal Year 2024, p. SpecEx-2, at https://www.doi.gov/sites/doi.gov/files/fy2024-nps-greenbook.pdf-508.pdf. Similarly, the NPS website contains an estimate of $22.3 billion; see https://www.nps.gov/subjects/infrastructure/deferred-maintenance.htm. The NPS discussion in this memorandum is based on the estimate of $21.09 billion that CRS received from DOI on March 27, 2023, unless otherwise noted. Among other reasons, the NPS independently reported estimate reflects certain concessioner owned or operated assets as well as assets that are not owned by the NPS but for which the agency has maintenance responsibility, unlike the estimate CRS received from DOI on March 27, 2023. This explanation of the difference in the estimates was provided to CRS by the NPS Office of Legislative and Congressional Affairs on August 1, 2023. For additional information on NPS deferred maintenance, see CRS Report R44924, National Park Service Deferred Maintenance: Frequently Asked Questions, by Laura B. Comay. Congressional Research Service 3 link to page 8 link to page 10 Deferred Maintenance of Federal Land Management Agencies maintenance of $7.66 billion. The BLM portion was 13%, based on a backlog estimate of $4.77 billion. The FWS had the smallest share, 6%, reflecting the agency’s deferred maintenance of $2.02 billion. Each agency’s deferred maintenance estimate for FY2022 consisted of various components. For FS, the single largest asset class was roads, which comprised 58% of the FY2022 total of $7.66 billion. The next largest asset class was buildings, which represented 21% of the FS FY2022 total. The next two largest asset classes were trails and road bridges, each with 6%. Seven other asset classes made up the remaining 9%. For NPS, the largest asset category was roads, bridges, and trails, which comprised 33% of the FY2022 deferred maintenance total of $21.1 billion.19 The buildings category comprised 30% of the total, followed by 26% for other structures, and 11% for water and wastewater systems. Roads, bridges, and trails also reflected the largest share of BLM’s FY2022 deferred maintenance, with 82% of the $4.77 billion total. Three other categories of assets had relatively small portions, specifically 8% for buildings; 5 and mandatory appropriations) of $16.74 billion.
16 For additional information on NPS deferred maintenance, see CRS Report R44924, National Park Service Deferred
Maintenance: Frequently Asked Questions, by Laura B. Comay.
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small portions, specifically 6% for buildings, 4% for other structures, and 3% for irrigation, dams, % for irrigation, dams,
and other water structuresand other water structures; and 5% for other structures. .
Roads, bridges, and trails made up the smallest portion of FWS’s Roads, bridges, and trails made up the smallest portion of FWS’s FY2020 deferred maintenance
($1.46 billion)FY2022 $2.02 billion deferred maintenance total, unlike for the other agencies. Moreover, the four asset categories had roughly , unlike for the other agencies. Moreover, the four asset categories had roughly
comparable portions, as follows: 28% for comparable portions, as follows: 28% for other structures; 27% for buildings; 26buildings; 26% for other structures; 25% for irrigation, % for irrigation,
dams, and other water structures; and dams, and other water structures; and 2021% for roads, bridges, and trails. % for roads, bridges, and trails.
Overview of Decade (FY2011-FY2020FY2013-FY2022)
Changes in Estimates in Current and Constant Dollars
As shown i As shown in Table 1 andand Figure 1, in current dollars,in current dollars,1720 the total deferred maintenance estimate the total deferred maintenance estimate
for the four agencies showed considerable variation over the 10-year period from for the four agencies showed considerable variation over the 10-year period from FY2011-
FY2020.18 DeferredFY2013 through FY2022. The total estimated deferred maintenance was at a low in FY2017 ($18.39 billion) and a high in maintenance was at a low in FY2017 ($18.39 billion) and a high in FY2020
($25.78FY2022 ($35.53 billion). From the start of the decade, deferred maintenance billion). From the start of the decade, deferred maintenance estimates increased overall by increased overall by
$5.98$15.95 billion ( billion (3081%), from $19.%), from $19.8058 billion in billion in FY2011 to $25.78FY2013 to $35.53 billion in billion in FY2020. The estimates
for BLM and NPS each increased by more than $3 billion. Specifically, BLM had a more than
nine-fold increase of $3.69 billion (923%), FY2022. Of the four agencies, the NPS had the largest dollar increase over the decade—$9.82 billion (87%).21 However, BLM had the largest percentage increase—$4.03 billion (545%)—primarily from an increase in the roads, bridges, and primarily from an increase in the roads, bridges, and
trails categorytrails category, beginning in in FY2020.22 The FS estimate increased by $2.10 billion (38%) over the decade. In contrast to the other three agencies, the FWS estimate was relatively flat, with a $0.01 billion (<1%) increase over the decade. 19 This was a reduction over the 10-year period in the proportion for this category of NPS deferred maintenance. For instance, in FY2013, the proportion of NPS deferred maintenance for roads, bridges, and trails was 58%. Similarly, five years ago (FY2018) the proportion was 57%. More recently, the proportion declined from 57% in FY2020 to 46% in FY2021 to 33% in FY2022. The change from FY2021 to FY2022 reflected a decrease in the estimate of deferred maintenance of roads, bridges, and trails from $10.53 billion in FY2021 to $6.97 billion in FY2022. The reasons for these reductions are not readily available. 20 “Current dollar” figures have not been adjusted for inflation. 21 The four main NPS asset classes had differing amounts of increase of the $9.82 billion total over the 10-year period. The increases for each asset class were: $4.61 for buildings; $3.17 billion for other structures; $1.64 billion for irrigation, dams, and other water structures; and $0.40 billion for roads, bridges, and trails. 22 Specifically, the largest increase in the Bureau of Land Management’s (BLM) deferred maintenance estimate for roads, bridges, and trails occurred between FY2019 and FY2020—from $0.71 billion to $3.59 billion—primarily due to a change in estimation methodology for this asset category. Congressional Research Service 4 link to page 10 link to page 13 link to page 9 link to page 10 link to page 10 link to page 9 link to page 9 Deferred Maintenance of Federal Land Management Agencies Within these overall changes, there was considerable variation among agency trends. The BLM estimate increased relatively gradually through FY2019, steeply from FY2019 to FY2020, and then more moderately through FY2022. The FWS estimate generally declined FY2020. NPS had an increase of $3.33 billion (30%), in large part due to an
increase in the roads, bridges, and trails category during the period. The FS estimate also
increased, by $0.35 billion (6%). By contrast, the FWS estimate decreased over the decade by
$1.39 billion (49%).
Within these overall changes, there was considerable variation among agency trends. The BLM
estimate increased relatively gradually throughout most of the period but ended with a steep
increase from FY2019 to FY2020. The NPS estimate increased fairly steadily for several years,
fell in FY2016, then rose again each year thereafter, with the largest increase (in both dollars and
percentage) from FY2019 to FY2020. The FWS estimate generally declined steadily for the first
several for the first three years, leveled off somewhat after FY2015, years, leveled off somewhat after FY2015, and reached a decade low in FY2018then increased in the last few years. The NPS estimate fluctuated, with a modest overall decrease, during the first half of the decade. It then increased relatively steeply through FY2021, followed by a decrease in FY2022. The FS . The FS
estimate fluctuated between $5.00 billion and $estimate fluctuated between $5.00 billion and $6.03 billion throughout the 10-year period, with an
increase each year since FY20175.56 billion through FY2019, then increased each subsequent year with the largest dollar and percent change from FY2021 to FY2022. Figure 1 depicts the annual changes in current dollars for each depicts the annual changes in current dollars for each
agency and for the four agencies combined. Factors that might have contributed to the changes agency and for the four agencies combined. Factors that might have contributed to the changes
are discussed in are discussed in the the “Issues in Analyzing Deferred Maintenance” section, below. section, below.
As shown in As shown in Table 2 andand Figure 2, in in FY2020FY2022 constant dollars, constant dollars,1923 the total deferred maintenance the total deferred maintenance
estimate for the four agencies increased over the course of the 10-year period by $estimate for the four agencies increased over the course of the 10-year period by $2.618.15 billion, billion,
from $from $23.1727.38 billion to $ billion to $25.7835.53 billion, or billion, or 1130% (as compared with % (as compared with a 30an 81% increase in current % increase in current
dollars). Two agencies had overall increases: $3.dollars). Two agencies had overall increases: $3.6274 billion ( billion (770363%) for BLM and $%) for BLM and $1.455.33 billion billion
((1134%) for NPS. Two agencies had overall decreases: $%) for NPS. Two agencies had overall decreases: $1.880.79 billion ( billion (5628%) for FWS and %) for FWS and
$0.$0.5911 billion ( billion (91%) for FS. %) for FS.
As was the case for current-dollar estimates, the overall changes in constant dollars reflected As was the case for current-dollar estimates, the overall changes in constant dollars reflected
various fluctuations. various fluctuations. The BLM estimate increased gradually throughout most of the period but
increased sharply from FY2019 to FY2020. The NPS estimate decreased gradually for several
years, fell in FY2016, and then increased each year thereafter. The largest increase was from

17 “Current dollar” figures have not been adjusted for inflation.
18 For DOI agencies, for each year from FY2009 to FY2014, CRS calculated a mid-range deferred maintenance figure
based on the average of the high and low estimates provided by DOI to CRS. This report reflects CRS’s mid-range
calculations for these years, as previously noted.
19 “Constant dollar” figures have been adjusted for inflation, with FY2020 as the base year.
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FY2019 to FY2020. The FWS estimate exceeded $3 billion for each of the first two years before
dropping to about half that amount by the middle of the decade. Thereafter, theTwo agencies, BLM and NPS, had relatively large overall increases in estimated deferred maintenance during the decade. For BLM, the sharpest increase occurred from FY2019 to FY2020, when the estimate more than tripled. However, the BLM estimate decreased in constant dollars in the last year of the period (from FY2021 to FY2022), essentially returning to the FY2020 level. For NPS, there was considerable fluctuation within the overall increase during the decade. More specifically, in constant dollars, the NPS estimate decreased overall from FY2013 to FY2019 (with a low in FY2016), increased relatively steeply from FY2020 to FY2021, then dropped in FY2022. The other two agencies, FWS and FS, had differing decreases in deferred maintenance over the decade. The FWS estimate declined considerably overall, with a constant-dollar low in FY2019 and annual increases thereafter. The FS declined modestly overall, with fluctuations between $6.25 billion and $7.77 billion in constant dollars. Four years exceeded $7.00 billion (FY2013, FY2016, FY2021, and FY2022) estimate declined
gradually through FY2019, then rose relatively modestly in FY2020. The FS estimate rose and
fell throughout the 10-year period, fluctuating between $5.28 billion and $6.93 billion. The first
three years had the highest estimates, each exceeding $6.00 billion. Figure 2 depicts the annual depicts the annual
changes in constant dollars for each agency and for the four agencies combined. changes in constant dollars for each agency and for the four agencies combined.
Table 1. Estimated Deferred Maintenance by Agency in Current Dollars,
FY2011-FY2020FY2013-FY2022
(in billions of current dollars) (in billions of current dollars)
Agency
FY2011 FY2012 FY2013 FY2014 FY2015 FY2016 FY2017 FY2018 FY2019 FY2020 FY2021 FY2022
BLM BLM
0. 0.40
0.61
0.74 74
0.74 0.74
0.75 0.75
0.81 0.81
0.84 0.84
0.96 0.96
1.09 1.09
4.09 4.09
FWS
2.85
2.704.38 4.77 FWS
2.01 2.01
1.53 1.53
1.33 1.33
1.40 1.40
1.38 1.38
1.30 1.30
1.33 1.33
1.46 1.46
NPS
11.04
11.161.76 2.02 NPS
11.27 11.27
11.50 11.50
11.73 11.73
10.93 10.93
11.18 11.18
11.9 11.92a
12.71 12.71
14.37 14.37
FS
5.51
6.0322.78 21.09b FS
5.56 5.56
5.10 5.10
5.20 5.20
5.49 5.49
5.00 5.00
5.20 5.20
5.22 5.22
5.86 5.86
Total
19.80
20.506.28 7.66 Total
19.58
18.87
19.02
18.62
18.39
19.38
20.35
25.78
35.20 35.53 Sources: Estimates for FS were taken from the annual budget justification to Congress for Estimates for FS were taken from the annual budget justification to Congress for FY2011FY2013-FY2015 and -FY2015 and
were provided by FS for FY2016-were provided by FS for FY2016-FY2020FY2022. Estimates for Department of the Interior (DOI) agencies for . Estimates for Department of the Interior (DOI) agencies for FY2011-
FY2013- 23 “Constant dollar” figures have been adjusted for inflation, with FY2022 as the base year. Congressional Research Service 5 Deferred Maintenance of Federal Land Management Agencies FY2014 were calculated by CRS based on deferred maintenance ranges provided by the DOI Budget OfficeFY2014 were calculated by CRS based on deferred maintenance ranges provided by the DOI Budget Office;. DOI DOI
agency estimates for FY2015-agency estimates for FY2015-FY2020FY2022 were provided by the DOI Budget Office. were provided by the DOI Budget Office.
Notes: BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; FS = BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; FS =
Forest Service. Forest Service.
a. This figure differs from a. This figure differs from NPSDOI’s estimates for estimates for prior years, because it includesNPS in other years. It includes assets that typically are excluded from DOI’s calculations for agency financial reports, such as assets that are not owned by the assets that are not owned by the
NPS but for which the agency has maintenance responsibility. Excluding these assets, the FY2018 estimate NPS but for which the agency has maintenance responsibility. Excluding these assets, the FY2018 estimate
for NPS was for NPS was $11.50 bil ion. b. This figure differs from independent NPS estimates, including $22.29 bil ion in the agency’s FY2024 budget justification (on page SpecEx-2, at https://www.doi.gov/sites/doi.gov/files/fy2024-nps-greenbook.pdf-508.pdf) and $22.3 bil ion on the agency’s website (at https://www.nps.gov/subjects/infrastructure/deferred-maintenance.htm). $11.50 bil ion.
Table 2. Estimated Deferred Maintenance by Agency in Constant Dollars,
FY2011-FY2020FY2013-FY2022
(in billions of (in billions of FY2020FY2022 constant dollars) constant dollars)
Agency
FY2011
FY2012 FY2013 FY2014 FY2015
FY2016
FY2017 FY2018 FY2019 FY2020
BLM
0.47
0.70
0.83
0.81
0.81
0.89
0.90
0.99
1.10
4.09
FWS
3.34
3.10
2.26
1.68
1.67
1.53
1.48
1.35
1.35
1.46
NPS
12.92
12.83
12.67
12.63
12.56
11.94
11.99
12.35
12.87
14.37
FS
6.45
6.93
6.25
5.60
5.57
6.00
5.36
5.39
5.28
5.86
Total
23.17
23.57
22.02
20.72
20.61
20.35
19.72
20.08
20.60
25.78FY2013 FY2014 FY2015 FY2016 FY2017 FY2018 FY2019 FY2020 FY2021 FY2022 BLM 1.03 1.01 1.00 1.07 1.09 1.20 1.31 4.78 4.95 4.77 FWS 2.81 2.09 1.78 1.86 1.79 1.63 1.59 1.71 1.99 2.02 NPS 15.76 15.68 15.68 14.50 14.51 14.91 15.23 16.81 25.73 21.09 FS 7.77 6.95 6.95 7.28 6.49 6.50 6.25 6.85 7.09 7.66 Total 27.38 25.73 25.43 24.70 23.86 24.24 24.38 30.15 39.75 35.53
Sources: Current dol ar estimates for FS were taken from the annual budget justification to Congress for dol ar estimates for FS were taken from the annual budget justification to Congress for
FY2011 FY2013-FY2015 and were provided by FS for FY2016--FY2015 and were provided by FS for FY2016-FY2020FY2022. . Current dol ar estimates for Department of the dol ar estimates for Department of the
Interior (DOI) agencies for Interior (DOI) agencies for FY2011FY2013-FY2014 were calculated by CRS based on deferred maintenance ranges -FY2014 were calculated by CRS based on deferred maintenance ranges
provided by the DOI Budget Office; DOI agency estimates for FY2015-provided by the DOI Budget Office; DOI agency estimates for FY2015-FY2020FY2022 were provided by the DOI were provided by the DOI
Budget Office. Budget Office.
Amounts in FY2020 constant dol ars were calculated Current dol ar estimates were converted to FY2022 constant dol ars by CRS using U.S. Department of Commerce, Bureau of by CRS using U.S. Department of Commerce, Bureau of
Economic Analysis, Table 3.9.4, “Price Indexes for Government Consumption Expenditures and Gross Economic Analysis, Table 3.9.4, “Price Indexes for Government Consumption Expenditures and Gross
Investment,” for nondefense structuresInvestment,” for nondefense structures, annual indexes, at https://apps.bea.gov/iTable/iTable.cfm?reqid=19&step=
2#reqid=19&step=2&isuri=1&1921=survey.
. Notes: BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; FS = BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; FS =
Forest Service. Forest Service.
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Figure 1. Change in Deferred Maintenance by Federal Land Management Agency in Current Dollars,
FY2011-FY2020FY2013-FY2022

Sources: Estimates for FS were taken from the annual budget justification to Congress for Estimates for FS were taken from the annual budget justification to Congress for FY2011FY2013-FY2015 and -FY2015 and
were provided by FS for FY2016-were provided by FS for FY2016-FY2020FY2022. Estimates for Department of the Interior (DOI) agencies for . Estimates for Department of the Interior (DOI) agencies for FY2011FY2013--
FY2014 were calculated by CRS based on deferred maintenance ranges provided by the DOI Budget OfficeFY2014 were calculated by CRS based on deferred maintenance ranges provided by the DOI Budget Office;. DOI DOI
agency estimates for FY2015-agency estimates for FY2015-FY2020FY2022 were provided by the DOI Budget Office. were provided by the DOI Budget Office.
Notes:: BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; FS = BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; FS =
Forest Service. Forest Service.
Figure 2. Change in Deferred Maintenance by Federal Land Management Agency in Constant Dollars,
FY2011-FY2020FY2013-FY2022

Sources: Current dol ar dol ar estimates for FS were taken from the annual budget justification to Congress for estimates for FS were taken from the annual budget justification to Congress for
FY2011FY2013-FY2015, and were provided by FS for FY2016--FY2015, and were provided by FS for FY2016-FY2020. Estimates for Department of the FY2022. Current dol ar estimates for Department of the Congressional Research Service 7 link to page 12 link to page 13 link to page 13 link to page 13 Deferred Maintenance of Federal Land Management Agencies Interior (DOI) Interior (DOI)
agencies for agencies for FY2011FY2013-FY2014 were calculated by CRS based on deferred maintenance ranges provided by the -FY2014 were calculated by CRS based on deferred maintenance ranges provided by the
DOI Budget Office; DOI agency estimates for FY2015-DOI Budget Office; DOI agency estimates for FY2015-FY2020FY2022 were provided by the DOI Budget Office. were provided by the DOI Budget Office.
Amounts in FY2020Current dol ar estimates were converted to FY2022 constant dol ars dol ars were calculated by CRS using the U.S. Department of by CRS using the U.S. Department of Commerce, Bureau of Commerce, Bureau of
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Economic Analysis, Table 3.9.4, “Price Indexes for Government Consumption Expenditures and Gross Economic Analysis, Table 3.9.4, “Price Indexes for Government Consumption Expenditures and Gross
Investment” for nondefense structuresInvestment” for nondefense structures, annual indexes, at https://apps.bea.gov/iTable/iTable.cfm?reqid=19&step=
2#reqid=19&step=2&isuri=1&1921=survey. .
Notes: BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; FS = BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; FS =
Forest Service. Forest Service.
Agency Shares of Deferred Maintenance in Current and Constant Dollars
Throughout the decade, agency shares of the deferred maintenance totals differed, as shown in Throughout the decade, agency shares of the deferred maintenance totals differed, as shown in
Figure 3 and Figure 4. InIn both current and constant dollars, in each fiscal year NPS had the both current and constant dollars, in each fiscal year NPS had the
largest portion of total deferred maintenance and considerably more than any other agency. FS largest portion of total deferred maintenance and considerably more than any other agency. FS
consistently had the second-largest share. FWS had the third-largest portion of total deferred consistently had the second-largest share. FWS had the third-largest portion of total deferred
maintenance in each year maintenance in each year except FY2020, when through FY2019, but since FY2020, FWS has had the smallest share. BLM assumed the third spot BLM assumed the third spot in FY2020, due to a relatively due to a relatively
large increase in estimated deferred maintenance. large increase in estimated deferred maintenance. Until FY2020Through FY2019, BLM had , BLM had had the smallest portion of the smallest portion of
the total deferred maintenance, though the difference with the FWS had narrowed the total deferred maintenance, though the difference with the FWS had narrowed in recentover the years. years.
The NPS The NPS portionand BLM portions of the total annual deferred maintenance of the total annual deferred maintenance was the same at the start and the end of
the 10-year period—56%. Bothrose during the 10-year period. From FY2013 to FY2022, the NPS portion increased from 58% to 59% and the BLM portion increased from 4% to 13%. By contrast, both FS and FWS had declining shares over the decade. The FS share FS and FWS had declining shares over the decade. The FS share
decreased from 28% in decreased from 28% in FY2011 to 23% in FY2020FY2013 to 22% in FY2022, and the FWS share dropped from , and the FWS share dropped from 1410% to 6%.24% to 6%.
By contrast, the BLM portion rose from 2% in FY2011 to 16% in FY2020.20
During the decade, the asset class that included roads comprised the largest portion of the four During the decade, the asset class that included roads comprised the largest portion of the four
agencies’ combined deferred maintenance. Roads represented the largest portion of FS deferred agencies’ combined deferred maintenance. Roads represented the largest portion of FS deferred
maintenance from maintenance from FY2011 to FY2020FY2013 to FY2022. Over the 10-year period, the NPS roads, bridges, and trails . Over the 10-year period, the NPS roads, bridges, and trails
category had the highest share of the agency’s deferred maintenance. Roads, bridges, and trails category had the highest share of the agency’s deferred maintenance. Roads, bridges, and trails
also was the biggest category of BLM’s deferred maintenance from also was the biggest category of BLM’s deferred maintenance from FY2011 to FY2020.
Although this category represented a majority of the FWS total deferred maintenance in FY2011
and FY2012, this has not been the case since FY2013. AFY2013 to FY2022. For FWS, a decline in the decline in the dollar estimate for roads, estimate for roads,
bridges, and trails resulted in a sizeable drop in overall FWS deferred maintenance beginning in bridges, and trails resulted in a sizeable drop in overall FWS deferred maintenance beginning in
FY2013, FY2013 (as discussed in the as discussed in the “Issues in Analyzing Deferred Maintenance” section below)section below. Accordingly, this category has not been the largest for . Accordingly, this category has not been the largest for
the FWS for several years and was the smallest in each of FY2017-the FWS for several years and was the smallest in each of FY2017-FY2020.

20FY2022. 24 An analysis of data over a longer period would provide additional perspective and An analysis of data over a longer period would provide additional perspective and, in some respects in some respects, a different one a different one
than presented in this report. For instance, in current dollars the four agencies had a combined deferred maintenance of than presented in this report. For instance, in current dollars the four agencies had a combined deferred maintenance of
$14.40 billion in FY1999, the first year for which estimates for all agencies are readily available. In contrast to the $14.40 billion in FY1999, the first year for which estimates for all agencies are readily available. In contrast to the
FY2011-FY2020 yearsFY2013-FY2022 years covered in this report, in FY1999, FS had the largest share of the backlog—$8.90 billion, or 62% of the total. This , in FY1999, FS had the largest share of the backlog—$8.90 billion, or 62% of the total. This
was more than twice the NPS amount of $4.25 billion, or 29% of the total. The estimates for the Fish and Wildlife was more than twice the NPS amount of $4.25 billion, or 29% of the total. The estimates for the Fish and Wildlife
Service (FWS) and the Service (FWS) and the Bureau of Land Management (BLM)BLM in FY1999 were $0.95 billion (7%) and $0.30 billion in FY1999 were $0.95 billion (7%) and $0.30 billion
(2%), respectively. From FY1999 through (2%), respectively. From FY1999 through FY2020FY2022, total deferred maintenance of the four agencies increased in current , total deferred maintenance of the four agencies increased in current
dollars by $dollars by $11.3821.13 billion ( billion (79147%), from $14.40 billion to $%), from $14.40 billion to $25.7835.53 billion. As compared with the 10-year period examined billion. As compared with the 10-year period examined
in this report, agencies had different amounts of change during this in this report, agencies had different amounts of change during this 2224-year period. Specifically, estimates of deferred -year period. Specifically, estimates of deferred
maintenance increased for the three DOI agencies: by $maintenance increased for the three DOI agencies: by $10.1216.84 billion ( billion (238396%) for NPS, $%) for NPS, $3.794.47 billion (1, billion (1,263490%) for BLM, %) for BLM,
and $and $0.511.07 billion ( billion (54113%) for FWS. By contrast, the FS estimate declined by $%) for FWS. By contrast, the FS estimate declined by $3.041.24 billion ( billion (3414%). %).
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Figure 3. Deferred Maintenance Total by Federal Land Management Agency in Current Dollars, FY2011-FY2020FY2013-FY2022 ($ in billions)

Sources: Estimates for FS were taken from the annual budget justification to Congress for Estimates for FS were taken from the annual budget justification to Congress for FY2011FY2013-FY2015 and -FY2015 and
were provided by FS for FY2016-were provided by FS for FY2016-FY2020FY2022. Estimates for Department of the Interior (DOI) agencies for . Estimates for Department of the Interior (DOI) agencies for FY2011FY2013--
FY2014 were calculated by CRS based on deferred maintenance ranges provided by the DOI Budget OfficeFY2014 were calculated by CRS based on deferred maintenance ranges provided by the DOI Budget Office;. DOI DOI
agency estimates for FY2015-agency estimates for FY2015-FY2020FY2022 were provided by the DOI Budget Office. were provided by the DOI Budget Office.
Notes: BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; : BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service;
FS = Forest Service. FS = Forest Service.
Figure 4. Deferred Maintenance Total by Agency in FY2020 Constant Dollars,
FY2011-FY2020


Congressional Research Service 9 Deferred Maintenance of Federal Land Management Agencies Figure 4. Deferred Maintenance Total by Federal Land Management Agency in FY2022 Constant Dollars, FY2013-FY2022 ($ in billions) Sources: : Current dol ar estimates for FS were taken from the annual budget justification to Congress for dol ar estimates for FS were taken from the annual budget justification to Congress for
FY2011FY2013-FY2015 and were provided by FS for FY2016--FY2015 and were provided by FS for FY2016-FY2020. EstimatesFY2022. Current dol ar estimates for Department of the Interior (DOI) for Department of the Interior (DOI)
agencies for agencies for FY2011FY2013-FY2014 were calculated by CRS based on deferred maintenance ranges -FY2014 were calculated by CRS based on deferred maintenance ranges provided by the provided by the
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DOI Budget Office; DOI agency estimates for FY2015-DOI Budget Office; DOI agency estimates for FY2015-FY2020FY2022 were provided by the DOI Budget Office. were provided by the DOI Budget Office.
Amounts in FY2020Current dol ar estimates were converted to FY2022 constant dol ars dol ars were calculated by CRS using the U.S. Department of by CRS using the U.S. Department of Commerce, Bureau of Commerce, Bureau of
Economic Analysis, Table 3.9.4, “Price Indexes for Government Consumption Expenditures and Gross Economic Analysis, Table 3.9.4, “Price Indexes for Government Consumption Expenditures and Gross
Investment” for nondefense structuresInvestment” for nondefense structures, annual indexes, at https://apps.bea.gov/iTable/iTable.cfm?reqid=19&step=
2#reqid=19&step=2&isuri=1&1921=survey. .
Notes: BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service; : BLM = Bureau of Land Management; FWS = Fish and Wildlife Service; NPS = National Park Service;
FS = Forest Service. FS = Forest Service.
Issues in Analyzing Deferred Maintenance
Fluctuations in deferred maintenance estimates are likely the result of many factorsFluctuations in deferred maintenance estimates are likely the result of many factors, among them
. Deferred maintenance estimates might vary due to economic conditions that are not related to agency efforts or within the control of facility managers. If deferred maintenance estimates reflect costs of needed materials, fuel, supplies, and labor, then the cost of deferred maintenance might change as the costs of these products and services change. In the past, both FS and DOI have identified changes in some of these costs as affecting deferred maintenance. For instance, DOI has noted that NPS deferred maintenance estimates could fluctuate with inflation and market trends (e.g., construction-related).25 More recently, supply chain issues related to the Coronavirus Disease 2019 (COVID-19) pandemic may have contributed to increased estimates of deferred maintenance. Additionally, federal land management agencies and other observers have cited 25 Information provided to CRS by the DOI Budget Office on February 27, 2015. Also, the FS partly attributed an earlier increase (in current dollars) in the deferred maintenance estimate for roads from FY2006 to FY2007 to rises in fuel prices and other associated construction costs. See USDA, FS, Fiscal Year 2009 President’s Budget, Budget Justification, pp. Special Exhibits, 15-18, at https://www.fs.usda.gov/sites/default/files/fy2009-forest-service-budget-justification.pdf. Congressional Research Service 10 Deferred Maintenance of Federal Land Management Agencies changing levels of visitation as affecting deferred maintenance, with increased visitation contributing to maintenance needs.26 Other factors that may contribute to fluctuations in deferred maintenance estimates include data collection and estimation methods, levels of funding, and asset portfolios, as discussed below. The extent to estimation methods, levels of funding, and asset portfolios, as discussed below. The extent to
which these and other factors affected year-to-year changes in any one agency’s maintenance which these and other factors affected year-to-year changes in any one agency’s maintenance
backlog during the decade is unclear, in part because comprehensive information is not readily backlog during the decade is unclear, in part because comprehensive information is not readily
available in all cases or has not been examined. Therefore, the data in this report may not fully available in all cases or has not been examined. Therefore, the data in this report may not fully
explain the changes in deferred maintenance estimates over time. explain the changes in deferred maintenance estimates over time.
Methodologies Used by Agencies
Methods for assessing the condition of assets and estimating deferred maintenance have Methods for assessing the condition of assets and estimating deferred maintenance have changedvaried
over the years. over the years. As a resultExamples provided below pertain to NPS construction, roads for the four agencies, and other factors. As a result of these and other methodological changes, it is unclear what portion of the change in deferred maintenance , it is unclear what portion of the change in deferred maintenance
estimates estimates over time is due to the addition of maintenance work that was not done on time and what portion is due to the addition of maintenance work that was not done on time and what portion
may be due to changes in methods of assessing and estimating deferred maintenance.may be due to changes in methods of assessing and estimating deferred maintenance.
NPS Construction-Related Costs The overall increase in NPS deferred maintenance estimates since FY2019 has been attributed in part to a change in agency estimation methods. Through FY2018, the agency had included only construction costs in its estimates, according to the NPS. Beginning in FY2019, NPS included the “full scope of construction-related costs, like design and construction management,” to align with industry standards and other agency calculations.27 DOI similarly attributed an $8.8 billion increase in the Department’s total deferred maintenance from FY2020 to FY2021 to “the addition of design, compliance, and construction management costs” to NPS estimates, according to a 2023 GAO report.28 Roads During the past decade, the four federal land management agencies altered methods for During the past decade, the four federal land management agencies altered methods for
estimating the deferred maintenance of roads, as shown in the following examples. estimating the deferred maintenance of roads, as shown in the following examples. Most recently,
a BLM A BLM change in road methodology led to an increase in the deferred maintenance for roads, change in road methodology led to an increase in the deferred maintenance for roads,
bridges, and trails category of $2.89 billion (408%), from $0.71 billion in FY2019 to bridges, and trails category of $2.89 billion (408%), from $0.71 billion in FY2019 to
$3.59 billion in FY2020. The increase in this category mirrors the roughly four-fold increase in $3.59 billion in FY2020. The increase in this category mirrors the roughly four-fold increase in
BLM’s total deferred maintenance from FY2019 to FY2020. BLM’s methodology change BLM’s total deferred maintenance from FY2019 to FY2020. BLM’s methodology change
stemmed from a Department of Transportation determination that BLM’s methodology differed stemmed from a Department of Transportation determination that BLM’s methodology differed
from that used by most other agencies, according to DOI and BLM.from that used by most other agencies, according to DOI and BLM.2129 BLM had been focusing on BLM had been focusing on
discrete road deficiencies discrete road deficiencies 26 For instance, regarding DOI, see GAO-23-106124, p. 6, at https://www.gao.gov/assets/gao-23-106124.pdf. Regarding NPS, see Nicolas D. Loris, Tackling the Enormous Deferred Maintenance Backlog for America’s National Parks, The Heritage Foundation, Backgrounder No. 3500, June 9, 2020, p. 2, at https://www.heritage.org/environment/report/tackling-the-enormous-deferred-maintenance-backlog-americas-national-parks. 27 NPS, Infrastructure, “Frequently Asked Questions,” at https://www.nps.gov/subjects/infrastructure/faqs.htm. Another NPS source indicates that the agency had been including non-construction costs in estimating deferred maintenance for transportation assets, but not for other categories of assets. See NPS, “National Park Service Modernizes Facility Management Practices; Updates How Repair Needs Are Calculated,” news release, May 9, 2022, at https://www.nps.gov/orgs/1207/05-09-2022-dm-r.htm. 28 GAO-23-106124, p. 7, at https://www.gao.gov/assets/gao-23-106124.pdf. 29 CRS consultation with DOI and BLM staff on June 16, 2021. Congressional Research Service 11 Deferred Maintenance of Federal Land Management Agencies (e.g., potholes) rather than on overall road condition and performance. (e.g., potholes) rather than on overall road condition and performance.
Beginning in FY2020, BLM implemented the Pavement Surface Evaluation Rating (PASER) Beginning in FY2020, BLM implemented the Pavement Surface Evaluation Rating (PASER)
system, regarded as an industry standard tool for assessing overall road condition.system, regarded as an industry standard tool for assessing overall road condition.2230 BLM made BLM made
related changes to evaluate every surface road (rather than a subset) and to enter data into the new related changes to evaluate every surface road (rather than a subset) and to enter data into the new
system in a system in a more timely way. However,timelier way. BLM’s FY2020 estimate of deferred maintenance of BLM’s FY2020 estimate of deferred maintenance of
roads was based on modeling and roads was based on modeling and iswas expected to be updated in FY2021 following actual road expected to be updated in FY2021 following actual road
assessments. This update could contribute to assessments. This update could contribute to a change in the estimateadditional changes in the estimates, according to DOI and , according to DOI and
BLM.23
BLM.31 In FY2022—the most recent year available—the deferred maintenance estimate for BLM roads, bridges, and trails was $3.92 billion. The other three land management agencies changed road evaluation methods in earlier years. The The other three land management agencies changed road evaluation methods in earlier years. The
FY2015 FWS budget justification states that FY2015 FWS budget justification states that
[i]n 2012, Service leadership concluded that condition assessment practices and policies in [i]n 2012, Service leadership concluded that condition assessment practices and policies in
place at that time were unintentionally producing higher than appropriate [deferred place at that time were unintentionally producing higher than appropriate [deferred

21 CRS consultation with DOI and BLM staff on June 16, 2021.
22 See DOI, BLM, Budget Justifications and Performance Information, Fiscal Year 2020, p. VI-127, at
https://www.doi.gov/sites/doi.gov/files/uploads/fy2020_blm_budget_justification.pdf.
23 Information in this paragraph was derived from a CRS consultation with DOI and BLM staff on June 16, 2021.
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maintenance (DM)] cost estimates for some types of constructed real property. DM maintenance (DM)] cost estimates for some types of constructed real property. DM
estimates for our extensive inventory of gravel and native surface roads are a major estimates for our extensive inventory of gravel and native surface roads are a major
contributor to this challenge. In response, the FWS is refining its practices and procedures contributor to this challenge. In response, the FWS is refining its practices and procedures
to improve consistency of DM cost estimates and their use in budget planning. Significant to improve consistency of DM cost estimates and their use in budget planning. Significant
reductions in the DM backlog are resulting from this effort.reductions in the DM backlog are resulting from this effort.2432
Subsequent FWS budget justifications have elaborated on changes to methods of estimating Subsequent FWS budget justifications have elaborated on changes to methods of estimating
deferred maintenance for roads. For instance, the FY2017 document states, “deferred deferred maintenance for roads. For instance, the FY2017 document states, “deferred
maintenance estimates for our extensive inventory of roads were further classified to emphasize maintenance estimates for our extensive inventory of roads were further classified to emphasize
public use and traffic volume. As a result, minimally used administrative roads are now generally public use and traffic volume. As a result, minimally used administrative roads are now generally
excluded from contributing to deferred maintenance backlog calculations.”excluded from contributing to deferred maintenance backlog calculations.”2533 Of note is that the Of note is that the
roads, bridges, and trails category of FWS deferred maintenance declined roads, bridges, and trails category of FWS deferred maintenance declined substantially (by $1.17 (by $1.17
billion, 80%) in the past several years in current dollars, from $1.46 billion in FY2012 to $0.29 billion, 80%) in the past several years in current dollars, from $1.46 billion in FY2012 to $0.29
billion in FY2020. This decline is reflected in the smaller FWS deferred maintenance total for billion in FY2020. This decline is reflected in the smaller FWS deferred maintenance total for
FY2020 ($1.46 billion). The FWS change in the method of estimating deferred maintenance for FY2020 ($1.46 billion). The FWS change in the method of estimating deferred maintenance for
roads, bridges, and trails appears to be a primary reason for the decreased estimate for this roads, bridges, and trails appears to be a primary reason for the decreased estimate for this
category and total FWS deferred maintenance over the 10-year period. category and total FWS deferred maintenance over the 10-year period.
Similarly, FS attributes variations in deferred maintenance partly to changes in the methodology Similarly, FS attributes variations in deferred maintenance partly to changes in the methodology
for estimating roads.for estimating roads.2634 For example, in FY2013 and FY2014, FS adjusted the survey For example, in FY2013 and FY2014, FS adjusted the survey
methodology for passenger-car roads, with the goal of providing more accurate estimates of the methodology for passenger-car roads, with the goal of providing more accurate estimates of the
roads backlog.roads backlog.2735 The FS estimate of deferred maintenance for roads fell in current dollars by The FS estimate of deferred maintenance for roads fell in current dollars by
$0.84 billion (22%) from FY2012 to FY2014, from $3.76 billion to $2.92 billion.$0.84 billion (22%) from FY2012 to FY2014, from $3.76 billion to $2.92 billion.2836 The extent to 30 See DOI, BLM, Budget Justifications and Performance Information, Fiscal Year 2020, p. VI-127, at https://www.doi.gov/sites/doi.gov/files/uploads/fy2020_blm_budget_justification.pdf. 31 Information in this paragraph was derived from a CRS consultation with DOI and BLM staff on June 16, 2021. In addition, in a 2022 report, GAO noted that DOI attributed the roughly $3 billion increase in BLM deferred maintenance from FY2019 to FY2020 to a new system for evaluating the conditions of roads. See GAO-23-106124, p. 7, at https://www.gao.gov/assets/gao-23-106124.pdf. 32 DOI, FWS, Budget Justifications and Performance Information, Fiscal Year 2015, p. NWR-30, at https://www.fws.gov/media/fiscal-year-2015-fish-and-wildlife-service-presidents-budget. 33 DOI, FWS, Budget Justifications and Performance Information, Fiscal Year 2017, p. NWRS-36, at https://www.fws.gov/media/fiscal-year-2017-fish-and-wildlife-service-presidents-budget. 34 Phone communication between CRS and FS staff on March 17, 2015, and FS annual budget justifications. 35 Information provided to CRS by the FS Legislative Affairs Office on March 13, 2015. 36 Other years during the decade had varying amounts of increase or decrease in the roads backlog related to prior years. Congressional Research Service 12 Deferred Maintenance of Federal Land Management Agencies The extent to
which the drop is attributable to changes in methodology, including regarding the types of roads which the drop is attributable to changes in methodology, including regarding the types of roads
reflected in the estimates, is not certain.reflected in the estimates, is not certain.2937
Finally, in FY2014, Finally, in FY2014, the NPS first reflected deferred maintenance for unpaved roads as part of its NPS first reflected deferred maintenance for unpaved roads as part of its
total deferred maintenance estimate (in agency financial reports). The agency’s total deferred maintenance estimate (in agency financial reports). The agency’s total deferred
maintenancedeferred maintenance for roads, bridges, and trails increased in current dollars by $0.26 billion (4%) from FY2013 to FY2014, from increased in current dollars by $0.26 billion (4%) from FY2013 to FY2014, from
$6.57 billion to $6.83 billion. DOI cited the inclusion of unpaved roads as among the reasons for $6.57 billion to $6.83 billion. DOI cited the inclusion of unpaved roads as among the reasons for
changes in NPS deferred maintenance estimates,changes in NPS deferred maintenance estimates,3038 although the extent of the effect on NPS although the extent of the effect on NPS
estimates is unclear. estimates is unclear.
In addition to these changes pertaining to roads, broaderOther Factors Broader changes in methodology for assessing changes in methodology for assessing
asset condition occurred during the decade. For asset condition occurred during the decade. For example, DOI agencies had been using an accuracy range of -15% to +25% to derive the estimated range of deferred maintenance for industry-standard assets.39 The change from a range to a single estimate beginning in FY2015 could have affected DOI deferred maintenance estimates as reflected in this report.40 As another example, agencies have enhanced efforts to define and quantify the maintenance needs of their assets generally. Efforts have included collecting comprehensive information on the condition of facilities and maintenance and improvement needs. For instance, the first cycle of comprehensive condition assessments of NPS industry-standard facilities was completed at the end of FY2006.41 However, NPS continues to develop business practices to estimate the maintenance needs of nonindustry standard assets. Nonindustry standard assets make up about a quarter of NPS’s total asset portfolio. This category presents particular challenges because it includes some unique asset types.42 37example, DOI agencies had been using an

24 DOI, FWS, Budget Justifications and Performance Information, Fiscal Year 2015, p. NWR-30.
25 DOI, FWS, Budget Justifications and Performance Information, Fiscal Year 2017, p. NWRS-36.
26 Phone communication between CRS and FS staff on March 17, 2015, and FS annual budget justifications.
27 Information provided to CRS by the FS Legislative Affairs Office on March 13, 2015.
28 Other years during the decade had varying amounts of increase or decrease in the roads backlog related to prior
years.
29 More recently, the FS again modified its method of estimating deferred maintenance of roads, in response to a 2017 More recently, the FS again modified its method of estimating deferred maintenance of roads, in response to a 2017
audit report that expressed concerns about the random sampling approach that was in use. The change was noted in audit report that expressed concerns about the random sampling approach that was in use. The change was noted in
USDA, FS, USDA, FS, Fiscal Year 2020 Budget Justification, p. 87, at https://www.fs.fed.us/sites/default/files/media_wysiwyg/, p. 87, at https://www.fs.fed.us/sites/default/files/media_wysiwyg/
usfs-fy-2020-budget-justification.pdf. For a discussion of the audit findings on the random sampling method, see usfs-fy-2020-budget-justification.pdf. For a discussion of the audit findings on the random sampling method, see
USDA, Office of Inspector General, Audit Report 08601-0004-31, USDA, Office of Inspector General, Audit Report 08601-0004-31, Forest Service Deferred Maintenance, May 2017, , May 2017,
pp. 27-28pp. 27-28, at https://www.oversight.gov/sites/default/files/oig-reports/USDAOIG/08601-0004-31.pdf. Hereinafter cited as USDA OIG 2017 FS Audit. . Hereinafter cited as USDA OIG 2017 FS Audit.
Additional examples of FS changes in roads methodology that appear to have affected deferred maintenance estimates Additional examples of FS changes in roads methodology that appear to have affected deferred maintenance estimates
pertain to years earlier than the 10-year period reflected in this report (e.g., changes first reflected in estimates for pertain to years earlier than the 10-year period reflected in this report (e.g., changes first reflected in estimates for
FY2007 and FY2008). FY2007 and FY2008).
3038 Information provided to CRS by the DOI Budget Office on February 27, 2015. Information provided to CRS by the DOI Budget Office on February 27, 2015.
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accuracy range of -15% to +25% to derive the estimated range of39 See, for example, DOI, Agency Financial Report FY 2014, p. 126, at https://www.doi.gov/pfm/afr/2014. 40 In addition to changes in methodology, the accuracy and consistency in agency application of estimation methods and in reporting on deferred maintenance also may affect estimates. For instance, the 2017 audit of FS deferred maintenance deferred maintenance (for FY2014 and FY2015) identified inaccuracies and inconsistencies in some areas. See USDA OIG 2017 FS Audit, pp. 27-31, at https://www.oversight.gov/sites/default/files/oig-reports/USDAOIG/08601-0004-31.pdf. 41 Industry-standard assets include buildings, housing, campgrounds, trails, unpaved roads, water utilities, and wastewater utility systems. See DOI, NPS, Budget Justifications and Performance Information, Fiscal Year 2019, pp. ONPS-57-58, at https://www.nps.gov/aboutus/upload/FY2019-NPS-Budget-Justification.pdf. 42 NPS categorizes 17,737 of its total assets as non-industry standard (of a 75,432 total assets), including utility systems, dams, constructed waterways, marinas, aviation systems, railroads, ships, monuments, fortifications, towers, interpretive media and amphitheaters. The agency indicates that “NPS continues to improve the data quality for this subset of the portfolio.” See DOI, NPS, Budget Justifications and Performance Information, Fiscal Year 2024, p. SpecEx-2, at https://www.doi.gov/sites/doi.gov/files/fy2024-nps-greenbook.pdf-508.pdf. Congressional Research Service 13 Deferred Maintenance of Federal Land Management Agencies Funding Opinions differ on the extent to which increased, level, or decreased funding should be provided to deferred maintenance. There also are varying views on the types of funds (e.g., discretionary or mandatory) and sources of funds (e.g., General Treasury or special funds) that might be best suited to address the maintenance backlog. Evaluations of the sufficiency of federal funding for deferred maintenance, and the appropriate types and sources of funding, may be hindered by the lack of total funding figures and by the incomparability of appropriations and deferred maintenance estimates. for
industry-standard assets.31 The change from a range to a single estimate beginning in FY2015
would have affected DOI deferred maintenance estimates as reflected in this report.32
As another example, agencies have enhanced efforts to define and quantify the maintenance
needs of their assets generally. Efforts have included collecting comprehensive information on the
condition of facilities and maintenance and improvement needs. For instance, the first cycle of
comprehensive condition assessments of NPS industry-standard facilities was completed at the
end of FY2006.33 However, through at least FY2018, NPS continued to develop business
practices to estimate the maintenance needs of non-industry standard assets.34 This category
presents particular challenges because it includes unique asset types.35
Funding Amounts and Impacts
It is unclear how much total funding is provided each year for deferred maintenance for the four It is unclear how much total funding is provided each year for deferred maintenance for the four
agenciesagencies, because annual presidential budget requests, appropriations laws, and supporting because annual presidential budget requests, appropriations laws, and supporting
documents typically do not aggregate funds documents typically do not aggregate funds from all sources for deferred maintenance. During the 10-year period for deferred maintenance. During the 10-year period
examined, portions of deferred maintenance funding (for one or more of the four agencies) have examined, portions of deferred maintenance funding (for one or more of the four agencies) have
come from agency maintenance and construction accounts, recreation fees, the Highway Trust come from agency maintenance and construction accounts, recreation fees, the Highway Trust
Fund (Department of Transportation) for roads, the Timber Sale Pipeline Restoration Fund (for Fund (Department of Transportation) for roads, the Timber Sale Pipeline Restoration Fund (for
FS and BLM), NPS concession fees, FS and BLM), NPS concession fees, and the NPS Centennial Challenge the NPS Centennial Challenge account, and the National Parks and Public Land Legacy Restoration Fundaccount, among other , among other
accounts. accounts.
In addition, funding figures are not directly comparable to deferred maintenance estimates In addition, funding figures are not directly comparable to deferred maintenance estimates
because the estimates are limited to project costs and thus do not reflect indirect costs, such as because the estimates are limited to project costs and thus do not reflect indirect costs, such as
salaries and benefits for government employees. Annual appropriations figures typically reflect salaries and benefits for government employees. Annual appropriations figures typically reflect
indirect costs.indirect costs. Evaluations of the sufficiency of federal funding for deferred maintenance may be
hindered by the lack of total funding figures and by the incomparability of appropriations and
deferred maintenance estimates.
Deferred maintenance estimates might vary due to economic conditions that are not related to
agency efforts or within the control of facility managers. For example, if deferred maintenance
estimates reflect costs of needed materials, fuel, supplies, and labor, then the cost of deferred
maintenance might change as the costs of these products and services change.36 Further, DOI has

31 See, for example, DOI, Agency Financial Report FY 2014, p. 126, at https://www.doi.gov/pfm/afr/2014.
32 In addition to changes in methodology, the accuracy and consistency in agency application of estimation methods
and in reporting on deferred maintenance also may affect estimates. For instance, the 2017 audit of FS deferred
maintenance (for FY2014 and FY2015) identified inaccuracies and inconsistencies in some areas. See USDA OIG
2017 FS Audit, pp. 27-31.
33 Industry-standard assets include buildings, housing, campgrounds, trails, unpaved roads, water utilities, and
wastewater utility systems. See DOI, National Park Service, Budget Justifications and Performance Information, Fiscal
Year 2019, pp. ONPS-57-58.
34 See DOI, National Park Service, Budget Justifications and Performance Information, Fiscal Year 2017, p. ONPS-
Ops&Maint-8.
35 NPS has approximately 25 non-industry standard asset types, among them bridges, tunnels, monuments and
memorials, ruins, amphitheaters, dams, marinas, and railroads.
36 For example, the FS noted that an increase (in current dollars) in the deferred maintenance estimate for roads from
FY2006 to FY2007 was partly the result of rises in fuel prices and other associated construction costs. See FY2009 FS
Budget Justification, pp. 15-18.
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noted that NPS deferred maintenance estimates could fluctuate with inflation and market trends
(e.g., construction-related).37
Moreover, consistent Great American Outdoors Act, P.L. 116-152 Recent Congresses debated whether to enact additional appropriations for deferred maintenance needs of agencies. In P.L. 116-152, the Great American Outdoors Act (GAOA), Congress established a new fund with mandatory spending authority for deferred maintenance. Mandatory funding was intended to provide more predictability of funding for agencies to plan and engage in activities to address maintenance needs. The new fund—the National Parks and Public Land Legacy Restoration Fund—provides funding for the four major federal land management agencies and the Bureau of Indian Education. The fund is to receive certain revenues from energy development on federal lands, for each of FY2021-FY2025, up to $1.90 billion annually. For use of the annual deposits to the fund, NPS is to receive the largest share—70%—according to GAOA. Under the law, the other agency shares are 15% for FS and 5% for each of BLM, FWS, and the Bureau of Indian Education. At least 65% of each agency’s funds are to be used for nontransportation projects.43 Congress first provided funding under this authority for FY2021, and has since provided funding for FY2022 and FY2023.44 For each year, the appropriation was approximately $1.9 billion. 43 For additional information on the operation of the fund, see CRS In Focus IF11636, The Great American Outdoors Act (P.L. 116-152), by Carol Hardy Vincent, Laura B. Comay, and Bill Heniff Jr. 44 This funding has been provided in the annual appropriations laws for Interior, Environment, and Related Agencies. See, for example, the appropriations law for FY2023 (P.L. 117-328, Division G, §431) and the accompanying explanatory statement, which allocated the funding among the agencies and identified specific projects that would receive funding. Congressional Research Service 14 Deferred Maintenance of Federal Land Management Agencies Impacts of Funding Consistent and comprehensive information on the effect of federal funding on the and comprehensive information on the effect of federal funding on the
condition of facilities and deferred maintenance over the decade does not appear to be availablecondition of facilities and deferred maintenance over the decade does not appear to be available
in budget documents. In particular, . For instance, information based on the facilities condition index (FCI) information based on the facilities condition index (FCI)
seems to be incomplete or inconsistent in agency budget justifications.seems to be incomplete or inconsistent in agency budget justifications.3845 In some cases, budget In some cases, budget
justifications either do not provide FCI figures for assets or provide figures only for certain years. justifications either do not provide FCI figures for assets or provide figures only for certain years.
In other cases, it is not clear whether the FCI figures cover all agency assets or a subset of the In other cases, it is not clear whether the FCI figures cover all agency assets or a subset of the
assets. Together, the budget justifications present a mix of FCI information using quantitative assets. Together, the budget justifications present a mix of FCI information using quantitative
measurements; percentage measurements; and qualitative statements, such as that a certain measurements; percentage measurements; and qualitative statements, such as that a certain
number or percentage of structures are in “good” condition, but without corresponding FCI number or percentage of structures are in “good” condition, but without corresponding FCI
figures. figures.
Although Although comprehensive information on amounts and impacts of deferred maintenance funding amounts and impacts of deferred maintenance funding may not be readily available, audits of agency programs, Administration budget requests, and other sources at times have asserted a need for increased appropriations to reduce agency backlogs.46 Some agencies have contended that insufficiency of funding for regular maintenance (e.g., annual maintenance) has led to increases in deferred maintenance.47 For instance, DOI has asserted that “the total backlog will continue to grow if there is a gap in the funding of annual maintenance needs. When annual funding to address routine and cyclic maintenance falls short of what is necessary, it leads to asset degradation.”48 Similarly, FWS has attributed increases in the backlog over time to “inadequate investments in life cycle infrastructure management and base maintenance.”49 In the past, agencies sometimes have attributed reductions in deferred maintenance (or slower rates of increase) in part to additional appropriations, such as those provided in the American Recovery and Reinvestment Act of 2009 (ARRA; P.L. 111-5).50 The FY2016 FWS budget justification noted the ARRA funding as one factor contributing to a reduction in the backlog 45may not be readily available,
agencies sometimes attributed reductions in deferred maintenance (or slower rates of increase) in
part to additional appropriations, such as those provided in the American Recovery and
Reinvestment Act of 2009 (ARRA; P.L. 111-5).39 The FY2016 FWS budget justification notes the
ARRA funding as one factor contributing to a reduction in the backlog following a high in
FY2010, for instance.40 At times, audits of agency programs, Administration budget requests, and
other sources have asserted a need for increased appropriations to reduce agency backlogs.41
Recent Congresses debated whether to enact additional appropriations for deferred maintenance
needs of agencies. In P.L. 116-152, the Great American Outdoors Act, Congress established a new
fund with mandatory spending authority for deferred maintenance of the four major federal land
management agencies and the Bureau of Indian Education. The new fund—the National Parks
and Public Land Legacy Restoration Fund—is to receive certain revenues from energy

37 Information provided to CRS by the DOI Budget Office on February 27, 2015.
38 The facilities condition index (FCI) is an accepted industry measure of the condition of constructed assets at a The facilities condition index (FCI) is an accepted industry measure of the condition of constructed assets at a
specific point in timespecific point in time, and it. It serves as a performance measure for condition improvement. It is the ratio of the deferred serves as a performance measure for condition improvement. It is the ratio of the deferred
maintenance to the current replacement value of the asset. As a general guideline, a facility with an FCI less than 0.15 maintenance to the current replacement value of the asset. As a general guideline, a facility with an FCI less than 0.15
is considered to be in acceptable condition. See DOI, BLM, is considered to be in acceptable condition. See DOI, BLM, Budget Justifications and Performance Information, Fiscal
Year 2022, p. V-105, at https://www.doi.gov/budget/appropriations/2022.
39 The information was provided to CRS by the DOI Budget Office on February 27, 2015, and by the FS Legislative
Affairs Office on March 13, 2015. ARRA provided emergency funding to the agencies for FY2009, with the monies
available for obligation through September 30, 2010. Some of the projects were completed in subsequent fiscal years.
Under the law, the four agencies received $1.99 billion in appropriations for various accounts and purposes (excluding
funding for wildland fire management), although the portion used for deferred maintenance is not clear. These funds
were in addition to regular appropriations for FY2009.
40 DOI, FWS, Budget Justifications and Performance Information, Fiscal Year 2016, p. NWR-31. The FWS deferred
maintenance estimate for FY2010 was $3.02 billion (in current dollars). Other information provided to CRS by DOI
(for NPS) and by FS attributed reductions or slower growth of deferred maintenance to ARRA funding.
41 For instance, a 2017 audit report asserted that reducing the FS maintenance backlog “will require devoting the
necessary resources over an extended period of time,” and that “increasing wildfire management costs have left the
agency without extra funding to concentrate on reducing deferred maintenance.” See USDA OIG 2017 FS Audit, p. 6.
As another example, the Interior Budget in Brief for FY2021 (and earlier fiscal years) set out a proposal for the
establishment of a “Public Lands Infrastructure Fund,” with revenues from energy development on federal lands, to be
used for deferred maintenance needs of the four agencies (as well as the Bureau of Indian Education). See DOI, The
Interior Budget in Brief, Fiscal Year 2021, p. DH-37, at https://www.doi.gov/budget/appropriations/2021https://
www.doi.gov/sites/doi.gov/files/uploads/2020_highlights_book.pdf. A similar proposal was enacted by the 116th
Congress in P.L. 116-152, the Great American Outdoors Act, as discussed in the report. For information on legislative
proposals that had been proposed to establish a fund to address deferred maintenance, especially for the NPS, see CRS
In Focus IF10987, Legislative Proposals to Address National Park Service Deferred Maintenance, by Laura B. Comay.
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development on federal lands, for each of FY2021-FY2025, up to $1.9 billion annually. Of the
annual deposits in the fund, NPS is to receive the largest share—70%. The other agency shares
are 15% for FS and 5% for each of BLM, FWS, and the Bureau of Indian Education. At least 65%
of each agency’s funds are to be used for non-transportation projects.42 Congress first provided
funding under this authority for FY2021.43 Thus, any impact of this funding would not be
reflected in the deferred maintenance estimates for the 10-year period covered by this report.
2024, p. V-136, at https://www.doi.gov/sites/doi.gov/files/fy2024-blm-greenbook.pdf-508.pdf. 46 For instance, a 2017 audit report asserted that reducing the FS maintenance backlog “will require devoting the necessary resources over an extended period of time,” and that “increasing wildfire management costs have left the agency without extra funding to concentrate on reducing deferred maintenance.” See USDA OIG 2017 FS Audit, p. 6. As another example, the Interior Budget in Brief for FY2021 (and earlier fiscal years) set out a proposal for the establishment of a “Public Lands Infrastructure Fund,” with revenues from energy development on federal lands, to be used for deferred maintenance needs of the four agencies (as well as the Bureau of Indian Education). See DOI, The Interior Budget in Brief, Fiscal Year 2021, p. DH-37, at https://www.doi.gov/budget/appropriations/2021https://www.doi.gov/sites/doi.gov/files/uploads/2020_highlights_book.pdf. A similar proposal was enacted by the 116th Congress in P.L. 116-152, the Great American Outdoors Act, as discussed in the report. 47 GAO-23-106124, p.5, at https://www.gao.gov/assets/gao-23-106124.pdf. This report focused on four federal departments/agencies, including DOI. 48 DOI, Office of the Secretary, Questions for the Record: Senate Energy and Natural Resources, Subcommittee on National Parks, Hearing on Implementation of the Great American Outdoors Act, February 9, 2022, p. 8 (pdf), June 1, 2022, at https://www.doi.gov/sites/doi.gov/files/june-2022-qfr.pdf. 49 FWS, Infrastructure Management, at https://www.fws.gov/program/infrastructure-management. 50 The information was provided to CRS by the DOI Budget Office on February 27, 2015, and by the FS Legislative Affairs Office on March 13, 2015. ARRA provided emergency funding to the agencies for FY2009, with the monies available for obligation through September 30, 2010. Some of the projects were completed in subsequent fiscal years. Under the law, the four agencies received $1.99 billion in appropriations for various accounts and purposes (excluding funding for wildland fire management), although the portion used for deferred maintenance is not clear. These funds were in addition to regular appropriations for FY2009. Congressional Research Service 15 Deferred Maintenance of Federal Land Management Agencies following a high in FY2010, for instance.51 Agencies also sometimes have anticipated decreases in deferred maintenance as a result of increased appropriations. Most recently, federal land management agencies, among others, have cited GAOA appropriations as likely leading to less deferred maintenance. For instance, the FS claimed that “once [GAOA] projects identified through 2022 are completed, over $550 million in deferred maintenance will be addressed at over 2,000 recreation sites, 100 buildings, 16,500 miles of trail, and 6,500 miles of road.”52 Also, DOI claimed that GAOA funding “will help to retire a significant amount of DM&R [deferred maintenance and repair], helping to slow the growth of the backlog.”53 The effect of GAOA appropriations for FY2021-FY2023 on the maintenance backlog of the federal land management agencies is not clear. This is because agencies continue to obligate funding for projects and manage the work on projects that received appropriations. Agencies generally do not remove an asset’s deferred maintenance from the total estimate until the work is completed.54 Also, under GAOA, up to $1.9 billion will be available for each of FY2024 and FY2025, and work on funded projects likely will continue for several years thereafter due to the complexity of some construction projects.55 The impact of GAOA appropriations on deferred maintenance estimates also is likely to depend on the agencies’ effectiveness in managing these appropriations. A March 2022 report by the DOI Office of Inspector General identified various actions DOI completed to implement GAOA. However, the report stated that at that time, DOI had not taken two particular actions—development of a strategy to maximize the impact of GAOA funding and development of best management practices for deferred maintenance projects.56 According to the Inspector General, “without a documented strategy or best management practices for deferred maintenance, the Department and its bureaus are at risk of repeating the same practices that led to the continued increase in deferred maintenance. In addition, without a sound, documented strategy, the Department may face other risks—for example, financial, contracting, or logistical risks—as it spends the resources allocated to it.”57 Accordingly, the Inspector General recommended that DOI develop, document, and implement an effective strategy for GAOA funding and develop best management practices for deferred maintenance projects. In response, in October 2022, DOI issued a strategic plan for GAOA funding.58 About the same time, the DOI Inspector General also 51 DOI, FWS, Budget Justifications and Performance Information, Fiscal Year 2016, p. NWR-31, at https://www.fws.gov/media/fiscal-year-2016-fish-and-wildlife-service-presidents-budget. The FWS deferred maintenance estimate for FY2010 was $3.02 billion (in current dollars). Other information provided to CRS by DOI (for NPS) and by FS attributed reductions or slower growth of deferred maintenance to ARRA funding. 52 USDA, FS, Fiscal Year 2024 Budget Justification, p. 30a-175, at https://www.fs.usda.gov/sites/default/files/FS-FY24-Congressional-Budget-Justification.pdf. 53 DOI, Frequently Asked Questions (FAQs), Deferred Maintenance and Repair (DM&R), “Why does the DM&R backlog continue to grow?”, at https://www.doi.gov/gaoa-faqs#DM&R%20FAQs. 54 Ibid, “Does the DM&R backlog account for projects that are in progress?” 55 DOI, Frequently Asked Questions (FAQs), Great American Outdoors Act National Parks and Public Land Legacy Restoration Fund (GAOA LRF), “When will GAOA LRF funding run out?,” at https://www.doi.gov/gaoa-faqs#DM&R%20FAQs. 56 DOI, Office of Inspector General, The U.S. Department of the Interior Needs a Strategy to Coordinate Implementation of the Great American Outdoors Act, Report No. 2021-CR-031, pp. 3-4, March 2022, at https://www.oversight.gov/sites/default/files/oig-reports/DOI/FinalInspectionGAOATaskForcePublic.pdf. 57 Ibid, p. 6. 58 DOI, Great American Outdoors Act, National Parks and Public Land Legacy Restoration Fund, Strategic Plan, October 21, 2022, at https://www.doi.gov/sites/doi.gov/files/gaoa-lrf-strategic-plan-2022.10.21-final-508.pdf. Congressional Research Service 16 Deferred Maintenance of Federal Land Management Agencies included DOI deferred maintenance and GAOA funding in its FY2022 report on major management and performance challenges.59 Alternatives to Funding There are differing opinions on the extent to which non-federal funding should be used for deferred maintenance. There also are varying views on the types of any non-federal funding that might be suitable for addressing the maintenance backlog. Some observers and stakeholders have identified ways to potentially address deferred Some observers and stakeholders have identified ways to potentially address deferred
maintenance without solely relying on federal funding. For instance, a 2016 maintenance without solely relying on federal funding. For instance, a 2016 report by the
Government Accountability Office (GAO)GAO report on NPS deferred maintenance listed various actions on NPS deferred maintenance listed various actions
that NPS is taking at some park units. They include using donations, volunteers, and partnerships that NPS is taking at some park units. They include using donations, volunteers, and partnerships
to assist with maintenance; leasing assets to nonfederal parties in exchange for rehabilitation or to assist with maintenance; leasing assets to nonfederal parties in exchange for rehabilitation or
maintenance; and partnering with states in seeking transportation grants.maintenance; and partnering with states in seeking transportation grants.4460 As another example, a As another example, a
2016 report by a research institute set out options including outsourcing certain agency operations 2016 report by a research institute set out options including outsourcing certain agency operations
to the private sector, establishing a franchising system for new park units, and disposal of assets.to the private sector, establishing a franchising system for new park units, and disposal of assets.45
61 A more recent research institute analysis proposed streamlining environmental assessments under the National Environmental Policy Act to expedite work on deferred maintenance; setting entrance fees at NPS units at market rate to generate additional revenue that could be retained and used for deferred maintenance;62 charging foreign visitors to federal lands higher fees because they do not pay taxes; enhancing private philanthropy, including through corporate partnerships; expanding opportunities for concessions; and selling federal land.63 Asset Number, Condition, Acquisition, and Disposal
The asset portfolios of the four agencies vary considerably in terms of number, type, size, age, The asset portfolios of the four agencies vary considerably in terms of number, type, size, age,
and location of agency assets. Although comprehensive data on these variables over the past and location of agency assets. Although comprehensive data on these variables over the past
decade are not readily available, it is likely that they affect agency maintenance responsibilities decade are not readily available, it is likely that they affect agency maintenance responsibilities
and maintenance backlogs. For instance, NPS has more assets than the other DOI agencies, a and maintenance backlogs. For instance, NPS has more assets than the other DOI agencies, a
sizeable portion of which were constructed before 1900 or in the first half of the 20th century. The sizeable portion of which were constructed before 1900 or in the first half of the 20th century. The
2016 GAO report assessed various characteristics of the NPS maintenance backlog, including the 2016 GAO report assessed various characteristics of the NPS maintenance backlog, including the
age of park units. The agency determined that of the total FY2015 NPS deferred maintenance,age of park units. The agency determined that of the total FY2015 NPS deferred maintenance,46
park units established over 100 years ago had the largest share (32%). Further, park units
established more than 40 years ago collectively accounted for 88% of all NPS deferred
maintenance.47 Moreover, some NPS assets are in urban areas or are iconic structures, which
could affect maintenance costs.48

42 For additional information on the operation of the fund, see CRS In Focus IF11636, The Great American Outdoors
Act (P.L. 116-152), by Carol Hardy Vincent, Laura B. Comay, and Bill Heniff Jr.
43 The Interior, Environment, and Related Agencies appropriations law for FY2021 (P.L. 116-260, Division G, §434)
and the accompanying explanatory statement allocated the funding among the agencies and identified specific projects
that would receive funding.
44 Government Accountability Office64 59 DOI, Office of Inspector General, Inspector General’s Statement Summarizing the Major Management and Performance Challenges Facing the U.S. Department of the Interior, Fiscal Year 2022, at https://www.doioig.gov/reports/top-management-challenges/inspector-generals-statement-summarizing-major-management-and-6. The report states, on page 4, that with the additional GAOA funding, “DOI will likely face challenges ensuring it can promptly deploy the funding, prioritize projects, maintain staffing and resource capacity, and establish sufficient oversight. We are performing work to assess the NPS and BIE [Bureau of Indian Education] processes for addressing the deferred maintenance.” 60 GAO, , National Park Service: Process Exists for Prioritizing Asset Maintenance
Decisions, but Evaluation Could Improve Efforts, GAO-17-136, pp. 34-37, December 2016, at https://www.gao.gov/, GAO-17-136, pp. 34-37, December 2016, at https://www.gao.gov/
products/GAO-17-136. Hereinafter cited as GAO 2016 NPS Asset Maintenance Report. products/GAO-17-136. Hereinafter cited as GAO 2016 NPS Asset Maintenance Report.
4561 Property and Environment Research Center, Property and Environment Research Center, Breaking the Backlog, 7 Ideas to Address the National Park Deferred
Maintenance Problem, February 2016, at https://www.perc.org/wp-content/uploads/old/pdfs/, February 2016, at https://www.perc.org/wp-content/uploads/old/pdfs/
BreakingtheBacklog_7IdeasforNationalParks.pdf. BreakingtheBacklog_7IdeasforNationalParks.pdf.
46 The total FY2015 deferred maintenance estimate cited by GAO was $11.9 billion. This figure is different than the
figure reflected in this CRS report ($11.73 billion), because it reflects assets that are not owned by the agency but for
which the agency has maintenance responsibility.
47 GAO 2016 NPS Asset Maintenance Report, pp. 22-23, at https://www.gao.gov/products/GAO-17-136. Note that the
year a park unit was established is not necessarily reflective of the age of the assets in the unit; for example, newly
established units of the National Park System may contain historic properties.
48 As one example, the NPS is undertaking a $227 million renovation of Arlington Memorial Bridge to address deferred
maintenance. Recent deferred maintenance estimates for the bridge have varied depending on the method for repairing,
rehabilitating, or replacing the historic steel drawbridge span. For information on the bridge restoration, see the
NPS website at https://www.nps.gov/gwmp/learn/management/bridge-rehabilitation.htm.
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Deferred Maintenance of Federal Land Management Agencies
62 This proposal applies to recreation fees under the Federal Lands Recreation Enhancement Act. For an overview of this authority, see CRS In Focus IF10151, Federal Lands Recreation Enhancement Act: Overview and Issues, by Carol Hardy Vincent. 63 Nicolas D. Loris, Tackling the Enormous Deferred Maintenance Backlog for America’s National Parks, The Heritage Foundation, Backgrounder No. 3500, June 9, 2020, at https://www.heritage.org/sites/default/files/2020-06/BG3500.pdf. 64 The total FY2015 deferred maintenance estimate cited by GAO was $11.9 billion. This figure is different than the (continued...) Congressional Research Service 17 Deferred Maintenance of Federal Land Management Agencies park units established over 100 years ago had the largest share (32%). Further, park units established more than 40 years ago collectively accounted for 88% of all NPS deferred maintenance.65 Moreover, some NPS assets are in urban areas or are iconic structures, which could affect maintenance costs.66 More recently, GAO reported that DOI officials cited “aging assets that are more expensive to repair and maintain as time goes on,” together with increasing visitation, as accelerating degradation of assets and associated increases in maintenance and repair needs.67
The effect of changes in agency asset portfolios on deferred maintenance is not entirely clear. The effect of changes in agency asset portfolios on deferred maintenance is not entirely clear.
However, it could be asserted that the acquisition of assets, such as a sizeable number of large or However, it could be asserted that the acquisition of assets, such as a sizeable number of large or
iconic assets in relatively poor condition, would increase regular maintenance needs and the iconic assets in relatively poor condition, would increase regular maintenance needs and the
backlog, if maintenance is not performed when scheduled. For instance, the NPS contended that backlog, if maintenance is not performed when scheduled. For instance, the NPS contended that
“when parks are created or when new land is acquired, the properties sometimes come with “when parks are created or when new land is acquired, the properties sometimes come with
facilities that are in unacceptable condition or are unstable for the park or partner organizations.... facilities that are in unacceptable condition or are unstable for the park or partner organizations....
When facilities are excess to the park ... they also contribute to the deferred maintenance When facilities are excess to the park ... they also contribute to the deferred maintenance
backlog.”backlog.”4968 Similarly, it could be asserted that disposal of assets, such as a large quantity of old Similarly, it could be asserted that disposal of assets, such as a large quantity of old
assets in poor condition, could reduce deferred maintenance. For example, a 2017 audit of the FS assets in poor condition, could reduce deferred maintenance. For example, a 2017 audit of the FS
recommended that the agency “establish goals and milestones to aggressively reduce the number recommended that the agency “establish goals and milestones to aggressively reduce the number
of unused or underused assets in the agency’s portfolio” as one way to reduce maintenance of unused or underused assets in the agency’s portfolio” as one way to reduce maintenance
backlogs given limited resources.backlogs given limited resources.5069
Agencies examine whether to retain assets in their current condition or dispose of some assets, as Agencies examine whether to retain assets in their current condition or dispose of some assets, as
the following examples indicate. FS has sought to reduce its maintenance backlog by conveying the following examples indicate. FS has sought to reduce its maintenance backlog by conveying
unneeded or underused administrative sites, as well as decommissioning roads, road and facility unneeded or underused administrative sites, as well as decommissioning roads, road and facility
infrastructureinfrastructure, andand nonpriority recreation sites.nonpriority recreation sites.5170 FWS has attributed reductions in deferred FWS has attributed reductions in deferred
maintenance in part to “disposing of unneeded assets.”maintenance in part to “disposing of unneeded assets.”5271 NPS identifies assets that are not critical NPS identifies assets that are not critical
to the agency’s mission and that are in relatively poor condition for potential disposal. In the past, to the agency’s mission and that are in relatively poor condition for potential disposal. In the past,
the agency has noted that although the agency seeks to improve the condition of its asset portfolio the agency has noted that although the agency seeks to improve the condition of its asset portfolio
by disposing of assets, “analysis of removal costs versus annual costs often precludes the removal by disposing of assets, “analysis of removal costs versus annual costs often precludes the removal
option.”option.”53

72 figure reflected in this CRS report ($11.73 billion), because it reflects assets that are not owned by the agency but for which the agency has maintenance responsibility, among other reasons. 65 GAO 2016 NPS Asset Maintenance Report, pp. 22-23, at https://www.gao.gov/products/GAO-17-136. Note that the year a park unit was established is not necessarily reflective of the age of the assets in the unit; for example, newly established units of the National Park System may contain historic properties. 66 As one example, the NPS undertook a $227 million renovation of Arlington Memorial Bridge to address deferred maintenance. For information on the bridge restoration, see the NPS website at https://www.nps.gov/gwmp/learn/management/bridge-rehabilitation.htm. 67 GAO-23-106124, p. 6, at https://www.gao.gov/assets/gao-23-106124.pdf. 68 DOI, NPS

Author Information

Carol Hardy Vincent

Specialist in Natural Resources Policy


49 DOI, National Park Service, , Budget Justifications and Performance Information, Fiscal Year 2020, p. CONST-66, at , p. CONST-66, at
https://www.doi.gov/sites/doi.gov/files/fy2020-nps-justification.pdf. https://www.doi.gov/sites/doi.gov/files/fy2020-nps-justification.pdf.
5069 USDA OIG 2017 FS Audit, p. 11 USDA OIG 2017 FS Audit, p. 11, at https://www.oversight.gov/sites/default/files/oig-reports/USDAOIG/08601-0004-31.pdf. 70.
51 See, for example, USDA, FS, See, for example, USDA, FS, FY2020 Budget Justification, p. 83 and p. 127, at https://www.fs.fed.us/sites/default/, p. 83 and p. 127, at https://www.fs.fed.us/sites/default/
files/media_wysiwyg/usfs-fy-2020-budget-justification.pdf. files/media_wysiwyg/usfs-fy-2020-budget-justification.pdf.
5271 DOI, FWS, DOI, FWS, Budget Justifications and Performance Information, Fiscal Year 2016, p. NWR-31, p. NWR-31, at https://www.fws.gov/media/fiscal-year-2016-fish-and-wildlife-service-presidents-budget. 72 DOI, NPS.
53 DOI, National Park Service, , Budget Justifications and Performance Information, Fiscal Year 2017, p. ONPS-, p. ONPS-
Ops&Maint-14Ops&Maint-14, at https://www.nps.gov/aboutus/upload/FY17-NPS-Greenbook-for-website.pdf . .
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Author Information Carol Hardy Vincent Specialist in Natural Resources Policy
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