Search and Rescue (SAR) Operations on Federal Lands

Search and Rescue (SAR) Operations on Federal Lands

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Updated May 7, 2024
Search and Rescue (SAR) Operations on Federal Lands
Each year, thousands of visitors to federal lands require the
Federal land management agencies have, to varying
assistance of search and rescue (SAR) services. SAR
degrees, adopted NSP and NIMS standards and procedures
operations take place in a wide range of environments and
in their respective policies (see “SAR Operations on
conditions and can include brief searches of buildings;
Federal Lands”).
medical assistance on trails; or more significant multiday
air-, water-, and land-based rescue efforts. This CRS
SAR Operations on Federal Lands
product provides an overview of how SAR operations take
Each of the four federal land management agencies (BLM,
place on federal lands—including agency responsibilities,
NPS, FWS, and FS) has authority to conduct SAR activities
common types of SAR activities, and the prevalence of
on lands under its jurisdiction pursuant to a variety of
SAR incidents in these areas. Specifically, this product
statutes; however, doing so is typically discretionary (e.g.,
addresses SAR incidents located on lands administered by
16 U.S.C. §575 and 43 U.S.C. §1742 for FS and BLM-
four agencies that, together, administer more than 95% of
specific SAR authorities). SAR operations on federal lands
land owned by the federal government: the Bureau of Land
may take different forms depending on the agency
Management (BLM), National Park Service (NPS), and
responsible for administering the land in question, location
Fish and Wildlife Service (FWS), all within the Department
of the incident, type of SAR response required, and other
of the Interior (DOI), and the Forest Service (FS), within
contributing factors. For example, some federal lands may
the Department of Agriculture (USDA).
not see enough visitation or demand for SAR services to
require a fully staffed and trained SAR team. In other
National SAR Policies and Guidance
instances, agencies view SAR operations as the
Various federal entities set broad—generally voluntary—
responsibility of local authorities or entities. As a result,
standards for SAR activities that take place both on and off
SAR responses by federal land management agencies range
federal lands. The National Search and Rescue Committee
from support of local law enforcement authorities and
(the Committee) is the primary entity responsible for
volunteer groups to primary SAR coordination and
providing guidance and setting standards for federal
operations.
agencies to meet national and international SAR
obligations. The Committee is an interagency body
On FS and BLM lands, the responsibility for SAR response
comprising representatives from several federal agencies—
efforts generally lies with the local law enforcement
including DOI (though not USDA)—and oversees the
authority in the county where such lands are located and
creation and implementation of the National Search and
with whom the agency has a standing agreement or
Rescue Plan (NSP). The NSP is a voluntary agreement that
relationship (see FS Manual §1596.03 and BLM Manual
provides for the coordination of SAR operations, describes
Series 1703). According to these agencies, FS and BLM
federal agencies’ responsibilities in responding to SAR
occasionally may take a lead or first responder role in SAR
needs, and establishes national guidance for the
emergencies if an immediate and quick response will
development of SAR-related systems. Implementation of
reduce suffering or save lives, or due to their presence in
the NSP is the responsibility of the Committee and typically
remote and rural areas. However, once designated local
entails the adoption or issuance of supplemental national-
authorities are available, the agency assumes a supportive
level or agency-specific SAR guidance.
role to provide assistance where requested. Agency officials
also may serve as primary responders in small-scale or
For multi-agency, emergency, or disaster-related SAR
minor SAR incidents where agency personnel can respond
responses, agencies also may follow certain standards or
without outside assistance or incidents that do not require
directives developed or administered by the Federal
substantial resources.
Emergency Management Agency within the Department of
Homeland Security. This includes the Incident Command
For SAR incidents occurring within the National Wildlife
System of the National Incident Management System
Refuge System, FWS federal wildlife officers (FWOs)
(NIMS), which is a preparedness and response management
typically are the primary responders until such time that the
model that establishes a scalable response structure and can
incident grows or exceeds the technical complexity of the
be used by all jurisdictions, agencies, and organizations to
capacity or level of training of FWOs. Examples where the
ensure a unified response to complex events. For more
FWOs typically serve as the primary responder for SAR
information on SAR efforts undertaken in the context of
incidents include lost or missing persons, injured persons,
major disasters or emergencies, see CRS Report R46696,
water rescues, emergencies involving weather or wildfire,
National Preparedness: A Summary and Select Issues, by
and vehicle accidents.
Shawn Reese and Lauren R. Stienstra.
NPS generally serves as the primary responder to SAR
incidents on lands in which the agency has exclusive
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Search and Rescue (SAR) Operations on Federal Lands
jurisdiction. NPS management policies direct the agency to
cost of individual SAR operations varies widely depending
“make reasonable efforts to search for lost persons and
on the type of incident and the complexity of the rescue
rescue sick, injured, or stranded persons” (NPS,
needs. For the five-year period from 2019 to 2023, NPS
Management Policies 2006, §8.2.5.3). On lands or property
reported $21.6 million in total SAR costs; only those
in which the agency has concurrent, partial, or proprietorial
incidents classified by the agency as major (in excess of
jurisdiction (i.e., federal lands on which a state may be able
$500) are tracked. BLM, FS, and FWS do not track SAR
to enforce its laws to varying degrees), NPS efforts
costs.
typically are in support of the local sheriff’s office. Agency
policy allows for qualified SAR organizations or authorized
Generally, agencies do not have statutory or appropriations
local authorities to conduct or assist with SAR efforts
authority to reimburse outside entities for SAR activities,
pursuant to a formal agreement.
even when incidents occur on federal lands. However, units
of local government—typically counties—that contain
SAR Data Tracking
certain tax-exempt federal lands may receive annual
There is no comprehensive source of SAR data across
payments for SAR services through various federal
federal land management agencies. Some agencies track
programs. For example, the Payments in Lieu of Taxes
SAR data on an annual basis, whereas others do not. For
program (31 U.S.C. §§6901-6907) provides annual
example, since FS is not the entity primarily responsible for
formula-based payments to local governments that contain
SAR operations on National Forest System lands, the
certain federal lands to carry out public services, such as
agency does not maintain a centralized system for tracking
firefighting and police protection, construction of public
annual SAR data. For DOI agencies, data are more readily
schools and roads, and SAR operations. See CRS Report
available. DOI’s Office of Law Enforcement and Security
R46260, The Payments in Lieu of Taxes (PILT) Program:
oversees implementation of the Incident Management
An Overview, by Carol Hardy Vincent.
Analysis and Reporting System, which tracks law
enforcement incidents across certain DOI agencies,
At the federal level, agency-led SAR operations are
including those requiring SAR services. For recent SAR
provided at no cost to the individual. Agencies are not to
incidents occurring on BLM, FWS, and NPS lands see
delay SAR due to cost considerations. There have been rare
Figure 1.
cases where individuals requiring rescue have been cited
and convicted for high-risk or particularly egregious
Figure 1. SAR Incidents on NPS, FWS, and BLM
behavior and required to pay restitution for costs incurred in
Lands: 2019-2023
SAR operations (e.g., see United States v. Lantis, 17 F.4th
35, 37 [10th Cir. 2021] wherein an individual requiring
helicopter rescue in Yellowstone National Park was
convicted for “disorderly conduct” pursuant to 36 C.F.R.
§2.34(a)(4) and required to pay NPS restitution).
Issues for Congress
Congressional and stakeholder interest in SAR operations
on federal lands has focused on various issues. One such
issue is the degree to which the federal government is
responsible for providing and funding SAR services on land
under its jurisdiction. Because state and local jurisdictions
are responsible for most SAR operations on federal lands
outside of NPS and FWS lands, concerns have been raised
regarding the financial burden placed on local government
Source: Data provided to CRS by NPS, FWS, and BLM Offices of
in providing such services. In the 118th Congress, H.R. 439,
Legislative and Congressional Affairs, April 2024.
the Public Land Search and Rescue Act, would require the
Notes: Figures are for calendar year totals. Totals do not reflect
Secretary of the Interior to establish a grant program to
SAR incidents on FS lands. BLM data include al cal s for service to
assist or reimburse nonfederal entities that conduct remote
which BLM Law Enforcement responded between 2019 and 2023.
SAR activities conducted on DOI and USDA lands.
For agencies that have available data, NPS reported the
In addition, issues have been raised regarding restrictions
majority (84%) of SAR incidents on federal lands from
on the use of third-party, nongovernmental SAR groups to
2019 to 2023 (as mentioned, FS data are not available). The
aid in rescue or recovery efforts. In 2019, following alleged
NPS units reporting the highest number of SAR incidents
delays in NPS permitting of volunteer SAR groups to assist
over this period were Grand Canyon National Park, Lake
with the search for individuals missing in Lake Mead
Mead National Recreation Area, and Yosemite National
National Recreation Area, Congress enacted the Good
Park, in that order.
Samaritan Search and Recovery Act (43 U.S.C. §1742a).
Cost Considerations
Among other provisions, the statute directed the Secretary
of the Interior and the Secretary of Agriculture to expedite
Funding for SAR programs and operations is largely borne
access to federal lands for search and recovery missions
by the entity responsible for providing such services in a
conducted by certain individuals or organizations.
given region. Program costs can include training, supplies
and equipment, vehicles, personnel costs, and registration
Mark K. DeSantis, Analyst in Natural Resources Policy
fees for obtaining and maintaining SAR certifications. The
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Search and Rescue (SAR) Operations on Federal Lands

IF12020

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https://crsreports.congress.gov | IF12020 · VERSION 2 · UPDATED