Recreation and Visitor ServicesBureau of Land Management

… the “Purple Book”

A Unified Strategy to Implement “BLM’s Priorities for Recreation and Visitor

Services” Workplan

Attachment 2-1

Understanding the role of the BLM in supporting communities,

providing quality settings & benefitsand promoting partnerships

What we have heard from

external groups is the BLM cannot

and should not do this alone

Although the BLM needs additional resources, answers lie in collaborating and leveraging BLM’s resources with communities of place and interest

Attachment 2-2

1. provides ways to evaluate “appropriateness” of proposals,

2. assess the long-term costs and implications for management, &

3. helps BLM focus priorities and target program investments.

The Purple Book is:A corporate statement of commitment, with program priorities A corporate statement of commitment, with program priorities and a service delivery plan to facilitate beneficial outcomes to and a service delivery plan to facilitate beneficial outcomes to visitors and communities.visitors and communities.

The Unified Strategy promotes “cooperative conservation” and

Attachment 2-3

What is the Unified Strategy?

It is a planning/decision framework It is a planning/decision framework for implementing the seven key for implementing the seven key objectives of the Purple Book.objectives of the Purple Book.

It provides guidance in defining the It provides guidance in defining the relationships between the seven relationships between the seven objectives.objectives.

It is the first step toward It is the first step toward institutionalizing and integrating the institutionalizing and integrating the Purple Book into the development of Purple Book into the development of policy, guidance and budget for the policy, guidance and budget for the recreation program.recreation program.

Attachment 2-4

What is the Unified Strategy?

It prioritizes and aligns program It prioritizes and aligns program objectives and implementation objectives and implementation actions.actions.

It embraces the principles and It embraces the principles and concepts of “Cooperative concepts of “Cooperative Conservation”.Conservation”.

It incorporates a Benefits-Based It incorporates a Benefits-Based Management (BBM) application Management (BBM) application framework.framework.

Attachment 2-5

The Seven Purple Book Objectives

Manage public lands and waters for enhanced recreation experiences Manage public lands and waters for enhanced recreation experiences and quality of lifeand quality of life

Encourage sustainable travel and tourism development with gateway Encourage sustainable travel and tourism development with gateway communities and provide community-based conservation support for communities and provide community-based conservation support for visitor services visitor services

Provide fair value and return for recreation through fee collection and Provide fair value and return for recreation through fee collection and commercial servicescommercial services

Establish a comprehensive approach to travel planning and Establish a comprehensive approach to travel planning and managementmanagement

Ensure public health and safety, and improve the condition and Ensure public health and safety, and improve the condition and accessibility of recreation sites and facilities accessibility of recreation sites and facilities

Enhance and expand visitor services, including interpretation, Enhance and expand visitor services, including interpretation, information and educationinformation and education

Encourage and sustain collaborative partnerships, volunteers and Encourage and sustain collaborative partnerships, volunteers and citizen-centered public servicescitizen-centered public services

Attachment 2-6

The Key to the Unified Strategy

Application of the Unified Strategy and the Application of the Unified Strategy and the integration of Benefits-Based Management integration of Benefits-Based Management initiates an evolution from a “fun & games” initiates an evolution from a “fun & games” (activity-based) approach of delivering (activity-based) approach of delivering recreation services to a conceptual framework recreation services to a conceptual framework requiring all recreation actions to be subject to requiring all recreation actions to be subject to both outcomes-based management objectives both outcomes-based management objectives and to a hierarchy of program objectives and to a hierarchy of program objectives functionally related to one another.functionally related to one another.

Attachment 2-7

Objective 1

Manage public lands and waters for enhanced recreation experiences and quality of life.

▼▼

Objective 2Encourage sustainable travel and tourism development with gateway communities and

provide community-based conservation support for visitor services.

▼▼

Objective 3Provide fair value and return for recreation through fee collection and commercial

services.

▼ ▼

Objective 4Establish a comprehensive

approach to travel planning and management.

Objective 5Ensure public health and safety, and improve the condition and accessibility of recreation sites and

facilities.

▼▼

Objective 6Enhance and expand visitor services, including interpretation, information and

education.

▼▼

Objective 7Encourage and sustain collaborative partnerships, volunteers and citizen-centered

public services.

Hierarchy of Seven Purple Book Objectives

Attachment 2-8

The Objectives

All the Purple Book objectives are All the Purple Book objectives are essential components of the recreation essential components of the recreation program and all must be achieved.program and all must be achieved.

However, the achievement of some is However, the achievement of some is dependent on its relationship with the dependent on its relationship with the others - there is a cause and effect others - there is a cause and effect relationship among the seven objectives.relationship among the seven objectives.

Attachment 2-9

The Objectives

The key to implementing the strategy is to The key to implementing the strategy is to coordinate proposed recreation planning coordinate proposed recreation planning and implementation actions across the and implementation actions across the seven Purple Book objectives such that no seven Purple Book objectives such that no action occurs without first ensuring each is action occurs without first ensuring each is guided and constrained by all objectives guided and constrained by all objectives located above it in the hierarchy.located above it in the hierarchy.

Attachment 2-10

Thought Process

1) What outcomes (experiences and benefits) are 1) What outcomes (experiences and benefits) are desired including the essential recreation settings desired including the essential recreation settings required for their attainment? (objective 1) ……required for their attainment? (objective 1) ……

2) Do we have the commitment of the managing partners 2) Do we have the commitment of the managing partners and their assurance to provide a sustainable flow of and their assurance to provide a sustainable flow of services and products? (objective 2) ……services and products? (objective 2) ……

3) Will there be fair return for the fair value provided to 3) Will there be fair return for the fair value provided to our shared customers? (objective 3).our shared customers? (objective 3).

Attachment 2-11

Application ExampleProposed ActionProposed Action: Grant funds are available to develop a new : Grant funds are available to develop a new

mountain bike trail system on the edge of town. The project is mountain bike trail system on the edge of town. The project is consistent with the transportation management piece of the land consistent with the transportation management piece of the land use plan. Should BLM proceed with the project?use plan. Should BLM proceed with the project?

Step 1 - Go to the Hierarchy table.Step 1 - Go to the Hierarchy table. Step 2 – Determine where the proposal lies on the hierarchy.Step 2 – Determine where the proposal lies on the hierarchy. Step 3 – Begin at the top of the table and work down.Step 3 – Begin at the top of the table and work down.

First QuestionsFirst Questions:: Is there demonstrated demand for this activity Is there demonstrated demand for this activity and who are the primary user markets? What kinds of and who are the primary user markets? What kinds of experiences and benefits have been identified to address the experiences and benefits have been identified to address the desires of the primary user markets? Will mountain bike use desires of the primary user markets? Will mountain bike use in this area sustain the distinctive character of the public in this area sustain the distinctive character of the public land recreation setting, and will these facilitate production land recreation setting, and will these facilitate production and attainment of the desired experiences and benefits? and attainment of the desired experiences and benefits? (objective 1)(objective 1)

Next QuestionsNext Questions: Have you engaged key services providers and : Have you engaged key services providers and local governments within the local community to ensure that local governments within the local community to ensure that you can deliver the essential services? What are their you can deliver the essential services? What are their needs, and what do they bring to the table in terms of needs, and what do they bring to the table in terms of possible services? How and who is best to provide these possible services? How and who is best to provide these services, and what would be the effects? (objective 2)services, and what would be the effects? (objective 2)

Attachment 2-12

Application ExampleNext QuestionNext Question: Will implementation of the proposal : Will implementation of the proposal

provide fair value to customers within the targeted provide fair value to customers within the targeted markets, and have you identified the necessary actions markets, and have you identified the necessary actions required to generate sufficient revenue to sustain the required to generate sufficient revenue to sustain the delivery of essential services? (objective 3)delivery of essential services? (objective 3)

And so on down the hierarchy – Working up and down the And so on down the hierarchy – Working up and down the hierarchy ensures you fully consider how your action is hierarchy ensures you fully consider how your action is interrelated with and given strategic direction by the interrelated with and given strategic direction by the other objectives. It indicates what strategic actions the other objectives. It indicates what strategic actions the other objectives require as a condition for implementing other objectives require as a condition for implementing your action.your action.

The answers to these questions are determined through The answers to these questions are determined through application of the BBM planning approach.application of the BBM planning approach.

Attachment 2-13

To facilitate attaining the primary goals and objectives of the Purple Book – the Unified Strategy incorporates the principles of Benefits-Based Management (BBM)

… a results-oriented framework to view, plan and collaboratively deliver recreation services as a means to larger “ends” – “quality of life” or beneficial outcomes to: individuals, communities, economies and the environment.

Attachment 2-14

BBM’s customer-oriented approach recognizes the motivations that drive individuals to recreate.

Attachment 2-15

Benefits Based Management (BBM)

represents an evolution of BLM’s Recreation Program because it builds on existing recreation foundations (i.e. Recreation Opportunity Spectrum , Limits of Acceptable Change, Adaptive Management)

– it doesn’t replace them.

Attachment 2-16

BBM better meets the needs of

communities and constituents by…

Providing a logical framework for managers to engage collaborating Providing a logical framework for managers to engage collaborating partners, stakeholders and businesses in planning and managing partners, stakeholders and businesses in planning and managing recreation and visitor services. recreation and visitor services.

Opening doors to building and strengthening community-based Opening doors to building and strengthening community-based partnershipspartnerships which help leverage resources for management.which help leverage resources for management.

Encouraging coordinated provision of interpretation, stewardship Encouraging coordinated provision of interpretation, stewardship education and information services.education and information services.

Better defining and considering social, economic and environmental Better defining and considering social, economic and environmental benefits in planning decisions.benefits in planning decisions.

Necessitating a discussion of recreation setting characteristics which Necessitating a discussion of recreation setting characteristics which helps determine the appropriate public access (roads & trails) to meet helps determine the appropriate public access (roads & trails) to meet land use objectivesland use objectives

Attachment 2-17

The application of a BBM philosophy provides a management framework to…

Encourage regional & landscape level recreation planning which Encourage regional & landscape level recreation planning which integrates other resource considerations. integrates other resource considerations.

Move BLM away from responding to specific activity proposals Move BLM away from responding to specific activity proposals without regard to long-term implications.without regard to long-term implications.

Evaluate the affect of land use allocations and individual resource Evaluate the affect of land use allocations and individual resource projects on: recreation activities, experiences, outcomes and projects on: recreation activities, experiences, outcomes and recreation settings.recreation settings.

Focus limited recreation resources on land use plan objectives Focus limited recreation resources on land use plan objectives which helps BLM determine : “what we need to do” “what we which helps BLM determine : “what we need to do” “what we shouldn’t do” and when to say “NO”shouldn’t do” and when to say “NO”

Identify and foster partnerships with public & private providersIdentify and foster partnerships with public & private providers

Be customer-oriented combined with a practical business Be customer-oriented combined with a practical business approach to help with asset managementapproach to help with asset management

Attachment 2-18

Why Change? Because…implementing the Unified Strategy Because…implementing the Unified Strategy

initiates a decision framework requiring all planned initiates a decision framework requiring all planned actions to be subject to the hierarchy of program actions to be subject to the hierarchy of program objectives.objectives.

Because…our constituents continue to express Because…our constituents continue to express concern about the loss of character of BLM’s unique concern about the loss of character of BLM’s unique landscape settings and associated recreation landscape settings and associated recreation opportunities.opportunities.

Because… that which matters most to BLM’s Because… that which matters most to BLM’s visitors, local communities, service providing visitors, local communities, service providing businesses, and constituencies should also be a businesses, and constituencies should also be a primary concern of BLM managers.primary concern of BLM managers.

Attachment 2-19

What are the consequences of delaying action?

The clock is ticking. Every new planning effort must incorporate the The clock is ticking. Every new planning effort must incorporate the Unified Strategy and employ the conceptual recreation framework Unified Strategy and employ the conceptual recreation framework provided by BBM consistent with outcomes-based planning policy provided by BBM consistent with outcomes-based planning policy within Special Recreation Management Areas to fulfill the BLM’s within Special Recreation Management Areas to fulfill the BLM’s desire to effectively implement the “Cooperative Conservation” desire to effectively implement the “Cooperative Conservation” vision.vision.

For completed land-use plans which have not incorporated this, field For completed land-use plans which have not incorporated this, field managers will assess and evaluate effects of proposed projects in managers will assess and evaluate effects of proposed projects in Special Recreation Management Areas on activities, experiences, Special Recreation Management Areas on activities, experiences, beneficial outcomes and recreation setting character to ensure beneficial outcomes and recreation setting character to ensure consistency with BBM concepts.consistency with BBM concepts.

Attachment 2-20

Consequences (cont’d.) Decisions must be made with sufficient Decisions must be made with sufficient

background data to address the concerns of our background data to address the concerns of our publics and constituencies.publics and constituencies.

Decisions must be pro-active not reactive to the Decisions must be pro-active not reactive to the needs of outside interest groups, funding needs of outside interest groups, funding opportunities, and pressures from impacting opportunities, and pressures from impacting resource programs.resource programs.

Recreation planning must meet the needs of our Recreation planning must meet the needs of our visitors and customers to avoid the loss of visitors and customers to avoid the loss of quality recreation settings and opportunities.quality recreation settings and opportunities.

Attachment 2-21

Next Steps: There is no point in changing how There is no point in changing how

we plan if we don’t also intend to we plan if we don’t also intend to change how we manage. change how we manage.

New BLM Manual and Handbook New BLM Manual and Handbook

guidance is needed to provide the guidance is needed to provide the specifics on how to implement the specifics on how to implement the new planning policies and new planning policies and requirements.requirements.

Attachment 2-22

Next Steps-continued Training……Training…… Assessment and Monitoring……Assessment and Monitoring…… Staffing and Organization……Staffing and Organization…… Evaluate Activity-Based Programs Evaluate Activity-Based Programs

and other Initiatives……and other Initiatives…… Marketing and Information……Marketing and Information…… Budget/Workload & Performance Budget/Workload & Performance

Measures……Measures…… Facility and Condition Facility and Condition

Assessments/Asset Assessments/Asset Management……Management……

Attachment 2-23

Conclusion

Applying this Unified Strategy, with a focus Applying this Unified Strategy, with a focus on enhancing recreation experiences and on enhancing recreation experiences and quality of life outcomes, is consistent with quality of life outcomes, is consistent with the Department of the Interior’s effort to the Department of the Interior’s effort to implement “Cooperative Conservation”.implement “Cooperative Conservation”.

Attachment 2-24

This Strategy is grounded in the realities This Strategy is grounded in the realities that the BLM can no longer afford to that the BLM can no longer afford to ““Go it Go it alonealone””, can not be , can not be ““Everything to Everything to everyoneeveryone””, and recognizes we are , and recognizes we are ““Not Not the sole source provider of recreation the sole source provider of recreation opportunitiesopportunities””..

Conclusion

Attachment 2-25

Conclusion

Only if we work together with our Only if we work together with our partners – partners – communities of interest & communities of interest & communities of placecommunities of place - can we protect - can we protect the unique landscapes and settings that the unique landscapes and settings that make the BLM public lands so important make the BLM public lands so important to millions of recreating American’s.to millions of recreating American’s.

Attachment 2-26