link to page 1 
Updated April 26, 2019
The Federal Land Management Agencies
The Property Clause in the U.S. Constitution (Article IV,
management missions and purposes, which are briefly
Section 3, clause 2) provides Congress the authority to
summarized in this In Focus.
acquire, dispose of, and manage federal property. Currently,
Forest Service
approximately 640 million acres of surface land are
FS was established in the Department of Agriculture in
managed by the federal government, accounting for nearly
1905 and is charged with conducting forestry research,
28% of the 2.3 billion acres of land in the 50 states and
providing assistance to nonfederal forest owners, and
District of Columbia. Four federal land management
managing the 193 million acre National Forest System
agencies (FLMAs) administer 608 million acres (95%) of
(NFS). The NFS includes 154 national forests; 20 national
these federal lands:
grasslands; and various other federal land designations in
43 states, Puerto Rico, and the U.S. Virgin Islands. Most
Forest Service (FS), in the Department of Agriculture,
NFS land is in the West, although FS manages more than
manages the 193 million acre National Forest System.
half of all federal lands in the East.
Bureau of Land Management (BLM), in the Department
The first forest reserves—later renamed national forests—
of the Interior (DOI), manages 246 million acres of
originally were authorized to protect the lands, preserve
public lands.
water flows, and provide timber. These purposes were
expanded in the Multiple-Use Sustained-Yield Act of 1960
Fish and Wildlife Service (FWS), in DOI, manages 89
(16 U.S.C. §§528-531). This act added recreation, livestock
million acres as part of the National Wildlife Refuge
grazing, and wildlife and fish habitat as purposes of the
System.
national forests, with wilderness added as a purpose in
1964. The act directed that these multiple uses be managed
National Park Service (NPS), in DOI, manages 80
in a “harmonious and coordinated” manner and “in the
million acres in the National Park System.
combination that will best meet the needs of the American
people.” The act also directed FS to manage renewable
Most of these lands are in the West, where the percentage
resources under the principle of sustained yield, meaning to
of federal ownership is significantly higher than elsewhere
achieve a high level of resource outputs in perpetuity,
in the nation (see Figure 1). The remaining federal acreage
without impairing the productivity of the lands. In addition,
is managed by several other agencies, including the
Congress directed FS to conduct long-range planning
Department of Defense. The federal estate also includes
efforts to manage the national forests. Balancing the
areas on U.S. territorial lands and offshore and subsurface
multiple uses across the NFS has sometimes led to conflicts
mineral resources (not discussed here). The four FLMAs
regarding management decisions and priorities.
were established at different times with different
Figure 1. Federal Land Managed by FS, BLM, FWS, and NPS
Source: CRS.
Note: BLM = Bureau of Land Management; FS = Forest Service; FWS = Fish and Wildlife Service; NPS = National Park Service. In this CRS
product, the West refers to the following states: AK, AZ, CA, CO, ID, MT, NM, NV, OR, UT, WA and WY.
https://crsreports.congress.gov
The Federal Land Management Agencies
Bureau of Land Management
present and future generations. Other uses (motorized
BLM was formed in 1946 by combining two existing
recreation, timber cutting, grazing, etc.) are permitted, to
agencies. BLM currently administers more onshore federal
the extent that they are compatible with the species’ needs,
lands than any other agency—246 million acres. BLM
but wildlife-related activities (hunting, fishing, bird-
lands are heavily concentrated (99.9%) in the 12 western
watching, education, etc.) are considered “priority uses.”
states. Nearly half of the total acreage is in two states—
Determining compatibility can be challenging, but the
Alaska (29%) and Nevada (19%). BLM lands, officially
relative specificity of the mission generally has minimized
designated as the National System of Public Lands, include
conflicts over refuge management and use.
grasslands, forests, high mountains, arctic tundra, and
deserts. BLM lands often are intermingled with other
National Park Service
federal or private lands, and the agency has authority to
NPS was created in 1916 to manage the growing number of
acquire, dispose of, and exchange lands under various
national parks and similar protected areas. The National
statutes.
Park System has grown to 418 units with diverse titles—
national park, national preserve, national historic site,
As defined in the Federal Land Policy and Management Act
national recreation area, national battlefield, and many
of 1976 (43 U.S.C. §§1701 et seq.), BLM management
more. NPS administers 80 million acres of federal land in
responsibilities are similar to those of FS—sustained yields
all 50 states and the District of Columbia. The agency also
of the multiple uses, including recreation, grazing, timber,
manages some land in U.S. territories. Roughly two-thirds
watershed, wildlife and fish habitat, and conservation. For
of the system’s lands are in Alaska.
instance, about 154 million acres are available for livestock
grazing, and about 34 million acres are managed by BLM
NPS has a dual mission—to preserve unique resources and
as National Conservation Lands. Some lands are withdrawn
to provide for their enjoyment by the public. Park units
(restricted) from one or more uses or managed for a
include natural areas (e.g., Yellowstone, Grand Canyon,
predominant use. The agency inventories its lands and
Arches National Parks); prehistoric sites (e.g., Mesa Verde
resources and develops land-use plans for its land units. In
National Park, Dinosaur National Monument); and special
addition, BLM administers onshore federal energy and
places in American history (e.g., Valley Forge National
mineral resources, covering approximately 700 million
Historic Park, Gettysburg National Military Park, the Statue
acres of federal subsurface mineral estate—including the
of Liberty National Monument), as well as areas that focus
subsurface of many national forests—although not all of
on recreation (e.g., Cape Cod National Seashore, Glen
these acres contain extractable mineral and energy
Canyon National Recreation Area). NPS laws, regulations,
resources. BLM also supervises the mineral operations on
and policies emphasize the conservation of park resources
about 60 million acres of Indian trust lands. Conflicts
in conservation/use conflicts, and the system’s lands and
sometimes arise among and between users and land
resources generally receive a higher level of protection than
managers as a result of the diversity of the lands and
those of BLM and FS. The tension between providing
multiple-use opportunities provided on BLM public lands.
recreation and preserving resources has produced many
management challenges for NPS.
Fish and Wildlife Service
FWS was created in 1940, although the first national
Selected CRS Products
wildlife refuge was established by executive order in 1903.
CRS Report R42656, Federal Land Management Agencies
In 1966, the refuges were aggregated into the National
and Programs: CRS Experts.
Wildlife Refuge System (NWRS), administered by FWS.
The NWRS consists of a complex mix of land and water
CRS Report R43429, Federal Lands and Related
designations. This includes 89 million acres of wildlife
Resources: Overview and Selected Issues for the 116th
refuges, waterfowl production areas, and coordination areas
Congress.
in the 50 states (of which 77 million acres [87%] are in
Alaska). In addition, the NWRS includes 652 million acres
CRS Report R42346, Federal Land Ownership: Overview
of mostly territorial lands and submerged lands and waters
and Data.
as part of several mainly marine wildlife refuges and
marine national monuments. FWS also manages other lands
CRS Report RL34273, Federal Land Ownership:
within and outside of the NWRS through other authorities,
Acquisition and Disposal Authorities.
agreements, easements, or leases or in a secondary
jurisdiction capacity. In addition to administering the
CRS Report R45480, U.S. Department of the Interior: An
NWRS, FWS enforces various wildlife laws, protects
Overview, by Mark K. DeSantis.
endangered species, and manages migratory birds.
CRS Contacts
In contrast to the multiple-use missions of FS and BLM,
Katie Hoover, Specialist in Natural Resources Policy
FWS manages the NWRS through a dominant-use
mission—to conserve plants and animals for the benefit of
IF10585
https://crsreports.congress.gov
The Federal Land Management Agencies
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF10585 · VERSION 9 · UPDATED