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Form 1221-2(June 1969)UNITED STATESDEPARTMENT OF THE INTERIORBUREAU OF LAND MANAGEMENTMANUAL TRANSMITTAL SHEETRelease2-300Date11/17/2014SubjectH-2930-1 Recreation Permit and Fee Administration Handbook1. Explanation of Material Transmitted: This release transmits a revised Recreation PermitAdministration Handbook which replaces Handbook 2930-1, Release 2-295 in its entirety.This Handbook revision provides general policy, direction, and guidance for administeringrecreation permits on the public lands and associated waters under the administration of theBureau of Land Management.This revised Handbook provides recreation and visitor services policy direction tosupplement the Permits for Recreation on Public Lands Regulations set forth in 43 CFR Part2930.2. Reports Required: None.3. Material superseded: The material superseded by this release is listed under “REMOVE”below. No other directives are superseded.4. Filing Information: File as directed below.REMOVEINSERTAll of H-2930-1 (Rel. 2-295)(Total 302 pages)All of the Revised H-2930-1(Total 246 pages)Edwin L. RobersonAssistant Director, Resources and Planning

BLM HANDBOOKSupersedes Rel. 2-295Rel. 2-30011/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)iTABLE OF CONTENTSGuidelines for Using This Handbook .viiCHAPTER 1. SPECIAL RECREATION PERMITS .1-1I.TYPES OF PERMITS .1-1A. Commercial Use .1-1B. Competitive Use .1-2C. Vending .1-2D. Special Area Use .1-4E. Organized Group Activity or Event Use .1-4F. Relationship with Other BLM Permits .1-5II.WAIVING THE REQUIREMENT TO OBTAIN A PERMIT .1-7III.RECREATION PERMIT ADMINISTRATION .1-9A. Permit Availability .1-9B. Processing the Application .1-10C. Award of Permits .1-15D. Permit Duration .1-16E. Renewal of Permits .1-18F. Transfer of Permits .1-18G. Fees .1-20H. Fee Payment and Calculation .1-27I. Fee Collections .1-39J. Refunds .1-40K. Approval To Vary or Waive Fees .1-41L. Terms and Stipulations .1-42M. Bonds .1-42N. Insurance and Liability .1-49O. Permit Monitoring, Performance Evaluation, and Compliance .1-52P. Coordination and Joint Permits .1-57Q. Special Considerations for Selected Programs and Activities .1-58CHAPTER 2. RECREATION USE PERMITS .2-1I.ISSUANCE OF PERMITS .2-1A. Purpose .2-1B. Availability .2-1C. Procedures .2-1D. Duration .2-1BLM HANDBOOKRel. 2-300Supersedes Rel. 2-29511/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)iiII.FEES .2-2A. General Fee Policy and Guiding Parameters .2-2B. Establishment of New Fee Sites and Modification of Existing Fees .2-3C. Fee Categories .2-10D. Fee Structure (Passes) .2-14E. Fee Rates .2-15F. Payment .2-17G. Refunds .2-17H. Posting of Sites and Projects .2-17I. Fee Suspensions and Fee-Free Days .2-18III.EXPENDITURES .2-19A. Field Office Expenditures .2-19B. Administration, Overhead, and Indirect Costs .2-20C. Limitation on Use of Fees .2-20D. State Expenditures .2-20IV.ALLOCATION OF USE .2-21A. Fee Site Capacity .2-21B. Reservation Systems .2-21V.TERMS AND CONDITIONS OF USE .2-22VI.RENEWAL AND TRANSFER OF PERMITS .2-22VII.PERMIT SUSPENSION AND REVOCATION .2-22VIII. RECORDKEEPING AND STORAGE.2-23IX.FINANCIAL CONTROLS .2-23A. Collection Personnel .2-23B. Liabilities and Responsibilities .2-25C. Collection Sites .2-27D. Collection Activities .2-30X.FEE MANAGEMENT AGREEMENTS AND CONTRACTS FOR FEECOLLECTION SERVICES .2-32A. Selecting the Type of Instrument .2-32B. Fee Management Agreements .2-32C. Fee Collection Contracts .2-33XI.NATIONAL CONSISTENCY/LOCAL FLEXIBILITYBLM HANDBOOKSupersedes Rel. 2-295.2-35Rel. 2-30011/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)iiiCHAPTER 3.AMERICA THE BEAUTIFUL – THE NATIONAL PARKS ANDFEDERAL RECREATIONAL LANDS PASS PROGRAM .3-1I.USE OF INTERAGENCY PASSES .3-1II.DESIGN OF INTERAGENCY PASSES .3-1III.INTERAGENCY ANNUAL PASSES .3-2A. Price and Availability .3-2B. Validation of the Pass .3-2C. Confirmation Notices .3-3IV.INTERAGENCY SENIOR PASSES .3-3A. Exchange of Golden Age Passports for the Interagency Senior Pass .3-3B. Price and Availability .3-3C. Proof of Residency and Age .3-4D. Validation of the Pass .3-4E. Senior Passes Issued to Ineligible Persons .3-4V.INTERAGENCY ACCESS PASSES .3-5A. Exchange of Golden Access Passports for the Interagency Access Pass .3-5B. Price and Availability .3-5C. Proof of Residency and Permanent Disability .3-5D. Validation of the Pass .3-7VI.INTERAGENCY VOLUNTEER PASSES .3-7A. Price and Availability .3-7B. Proof of Eligibility .3-8C. Validation of the Pass .3-8VII.SUPPLEMENTAL MATERIALS .3-8A. Hangtags .3-8B. Decals .3-9C. Brochures .3-10D. Hole Punches .3-11VIII. ORDERING .3-11IX.ACCOUNTING AND REPORTING REQUIREMENTS .3-11X.EXPENDITURE OF PASS REVENUES .3-12XI.AGREEMENTS FOR SALE OF THE INTERAGENCY ANNUAL PASS .3-12A. Interagency Agreements with Other Federal Agencies .3-12B. Supplemental Cooperating Association Agreements .3-12BLM HANDBOOKSupersedes Rel. 2-295Rel. 2-30011/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)ivCHAPTER 4. RECREATION COMMERCIAL SERVICES .4-1[Reserved – Guidance Forthcoming]CHAPTER 5.DECISIONS, ALTERNATIVE DISPUTE RESOLUTION,PROTESTS, AND APPEALS .5-1I.COLLABORATIVE STAKEHOLDER ENGAGEMENT ANDALTERNATIVE DISPUTE RESOLUTION .5-1II.DECISIONS OF THE AUTHORIZED OFFICER .5-1A. Protests .5-2B. Appeals .5-3CHAPTER 6.RECORDKEEPING .6-1I.GENERAL POLICY .6-1II.ESTABLISHMENT AND MAINTENANCE OF CASE RECORDS .6-1A. Commercial and Competitive SRPs and Organized Group SRPs .6-1B. Special Area SRPs .6-1C. RUPs .6-1III.PUBLIC LAND STATISTICS AND BUDGETARY RECORDS .6-3IV.PRIVACY ACT CONSIDERATIONS .6-3A. Commercial SRPs .6-3B. RUPs and Noncommercial SRPs .6-3GLOSSARY .G-1REFERENCES AND AUTHORITY .R-1FIGURES1.Steps for Issuing Commercial, Competitive, and Organized Group Special RecreationPermits .1-132.Fees Established under the BLM Director’s Special Recreation Permit Authority .1-213.State Director’s Special Recreation Permit Fee Authority .1-214.Example of Cost Recovery for a Competitive Event .1-245.Discount for Use of Nonpublic Lands and Related Waters .1-336.Example of Minimum Fee (Using 2014 Minimum Fee) .1-357.Example of No Deductions or Discounts .1-368.Example of Eligible Deductions and Discounts .1-379.Example of Deductions, Discounts, and Periodic Payments .1-38BLM HANDBOOKSupersedes Rel. 2-295Rel. 2-30011/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)v10.11.12.13.14.Example of Bonding for a Commercial Activity .1-45General Guidelines for Minimum Insurance Requirements .1-51BLM Recreation Fee Proposals: Step-by-Step Review and Approval Process .2-5Standard Amenity Sites .2-12Examples of Special Recreation Permit File Organization .6-2APPENDIXESAppendix A – Fee StructureA1 Recreation Permit Fee Service Structure .A1-1Appendix B – Special Recreation PermitsB1Brief History of BLM Special Recreation Permit Fees and Actions .B1-1B2Decision Tree for Special Recreation Permitting .B2-1B3a Using a Letter of Agreement for Organized Groups Where a Special RecreationPermit Is Not Required .B3a-1B3b Sample Letter of Agreement .B3b-1B4Special Recreation Permit Application .B4-1B5Special Recreation Permit .B5-1B6Sample Business Plan Requirements .B6-1B7a Sample Operating Plan for a Commercial Special Recreation Permit .B7a-1B7b Sample Operating Plan for an Organized Group or Competitive Event .B7b-1B8Sample Decision Approving Application .B8-1B9Sample Decision Denying Application .B9-1B10 Sample Decision Terminating a Special Recreation Permit .B10-1B11a Sample Stipulations for a Commercial Land-based Special Recreation Permit .B11a-1B11b Sample Stipulations for a Commercial River Running Special Recreation Permit .B11b-1B11c Sample Stipulations for an Organized Group Special Recreation Permit .B11c-1B12 Sample Annual Operating Authorization .B12-1B13 National Special Recreation Permit Fee Schedule .B13-1B14 Sample Letter with Estimated Cost Recovery .B14-1B15 OMB Circular No. A-25 .B15-1B16 Sample Letter Combining Preseason Bill, Outfitter Evaluation, andAnnual Operating Authorization .B16-1B17 Sample Bond Determination Letter .B17-1B18 Sample Certificate of Insurance .B18-1B19 Sample Outfitter Evaluation .B19-1B20 Sample Post-Use Report .B20-1B21 Sample Memorandum of Understanding for a Multijurisdictional Permit .B21-1Appendix C – Recreation Use PermitsC1Sample Federal Register Notice for Establishing a Fee Area .C1-1C2Recreation Fee Collection Affidavit .C2-1C3Collections Officer Notice of Designation .C3-1C4Sample Fee Management Agreement .C4-1BLM HANDBOOKSupersedes Rel. 2-295Rel. 2-30011/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)viiGUIDELINES FOR USING THIS HANDBOOKThe Bureau of Land Management (BLM) authorizes recreation use of the public lands andrelated waters through the issuance of special recreation permits and recreation use permits. TheBLM’s authority to issue permits is described in the Federal Land Policy and Management Actof 1976 and 43 Code of Federal Regulations (CFR) 2930. The authority to collect and retainrecreation fees is specified in the Federal Lands Recreation Enhancement Act (REA) of 2004.This handbook provides policy and guidance for administering key elements of the BLMRecreation Fee Program as follows:Special Recreation Permits (SRPs) (Chapter 1). SRPs are authorizations that allow forcommercial, competitive, and group recreation uses of the public lands and related waters. Theyare issued as a means to control visitor use, protect recreational and natural resources, andprovide for the health and safety of visitors. The BLM usually issues noncommercial grouppermits and SRPs in high-use areas or where recreation use requires special BLM management.It also issues SRPs as a mechanism to provide fair market value to the United States for therecreational use of public lands.Recreation Use Permits (RUPs) (Chapter 2). RUPs are authorizations for the use of developedfacilities that meet the fee criteria established by REA. The BLM issues RUPs to ensure that thepeople of the United States receive a fair and equitable return for the use of these facilities tohelp recover construction, operation, maintenance, administration, and permit management costs.America the Beautiful – The National Parks and Federal Recreational Lands Pass Program(Chapter 3). This pass is the national pass for units of the BLM, the National Park Service, theU.S. Forest Service, and the U.S. Fish and Wildlife Service. This interagency pass is accepted atall sites and areas for standard amenity fees and is accepted for some discounts at expandedamenity sites and for expanded amenity services.Recreation Commercial Services (Chapter 4). Reserved (guidance forthcoming).Decisions, Alternative Dispute Resolution, Protests, and Appeals (Chapter 5). Processes are inplace so that the decisions of the authorized officer regarding SRPs may be protested to theauthorized officer and/or appealed to the Interior Board of Land Appeals.Recordkeeping (Chapter 6). Documents related to the issuance and administration of SRPs andRUPs are created, maintained, and safeguarded as official government records.A Glossary immediately follows Chapter 6 and defines commonly used terms in the context ofthe BLM Recreation Fee Program.A major feature of this handbook is the Appendixes section presented at the back of the book,which provides additional guidance and examples and, in some cases, sample documents toassist the reader in issuing and/or administering permits. It is important to note that state-specificBLM HANDBOOKSupersedes Rel. 2-295Rel. 2-30011/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)viiimaterial is contained in some appendix samples and that this material is appropriate foraddressing only the unique resource or procedural factors of the field office in which the materialwas developed. Therefore, care should be used when copying stipulations or other material thatcontains state-specific text, to ensure that the full text is appropriate to, or else modified to fit, thesituation for which it is being used. In addition, some states have issued state-specificsupplemental guidance that should be consulted and applied as appropriate.Sample documents and job aids for recreation permit administration are also posted on the BLMNational Training Center’s Knowledge Resource Center athttp://www.ntc.blm.gov/krc/resource.php?type byProgramArea&programAreaId 70. Fieldoffice or state office recreation leads should be consulted if questions arise.NOTE:The complex nature of the material in this handbook required the use of multiplelevels of headings and subheadings and the inclusion of many lists. Readers maynavigate the material more easily by remembering that lists are distinguished fromheadings and subheadings by the use of parentheses, always starting with (1), (2),(3), etc., followed by a), b), c), then (i), (ii), (iii).BLM HANDBOOKSupersedes Rel. 2-295Rel. 2-30011/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)1-1CHAPTER 1.I.SPECIAL RECREATION PERMITSTYPES OF PERMITSSpecial recreation permits (SRPs) are authorizations that allow specified recreation use of thepublic lands and related waters. (An overview of how SRPs and other types of permits figureinto the BLM’s fee service structure appears in Appendix A1, Recreation Permit Fee ServiceStructure. See Appendix B1, Brief History of BLM Special Recreation Permit Fees and Actions,for a historical overview of significant decisions affecting SRP fee and permit administration.)SRPs are issued to manage visitor use, protect natural and cultural resources, achieve the goalsand objectives of the field office recreation program as outlined in a land use plan, and authorizethe types of recreation uses described here. The five major types of SRPs are discussed in thissection. Guidance in determining the appropriate permit may be found in Appendix B2,Decision Tree for Special Recreation Permitting.A. Commercial UseCommercial use means recreation use of the public lands and related waters for business orfinancial gain. The activity, service, or use is commercial if any of these conditions is present:(1) Any person, group, or organization makes or attempts to make a profit,receives money, amortizes equipment, or obtains goods or services ascompensation from participants in recreation activities occurring onpublic lands and led, sponsored by, or organized by that person, group,or organization. Compensation for recreation services may come fromparticipants and/or other sources.(2) Anyone collects a fee or receives other compensation that is notstrictly a sharing of actual expenses, or exceeds actual expenses,incurred for the purposes of the activity, service, or use. (See Glossarydefinition of Actual Expenses.)(3) There is paid, public advertising to seek participants. (See Glossarydefinition of Public Advertising.)(4) Participants pay for a duty of care, i.e., an expectation of safety. (SeeGlossary definition of Duty of Care.)As noted, paid public advertising qualifies a use as commercial. Paid public advertisingincludes, for example, newspaper ads, Internet banners, and radio and television air time(43 CFR 2932.5(1) (iii)).Use by scientific, educational, and therapeutic institutions or nonprofit organizations iscommercial and subject to a permit requirement when any of the preceding criteria is present.The nonprofit status of any group or organization, alone, does not determine that an event orBLM HANDBOOKSupersedes Rel. 2-295Rel. 2-30011/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)1-2activity arranged by such a group or organization is noncommercial. By contrast, profitmakingorganizations are automatically classified as commercial, even if that part of their activitycovered by the permit is not profitmaking (43 CFR 2932.5).Commercial use can be either public or nonpublic. Public commercial use is characterized byefforts to promote the activity as available for general public participation. Nonpubliccommercial uses are those that are available only to a limited group of participants (e.g.,members of a club). Examples of commercial activity include, but are not limited to,fundraising, outfitter/guide services, guided backpacking, courses with a recreation component,outdoor skills workshops, motorized tours, and guided horse rides.An activity may be deemed noncommercial where no compensation is received for the activity,the activity leaders’ positions are not established to organize and/or conduct recreation activities,no fees other than cost sharing of actual expenses are paid by participants, the activity is notpublicly advertised, and the organizers share trip expenses equally with participants. (SeeGlossary definition of Financial Gain, and Chapter 1, Section II., Waiving the Requirement ToObtain a Permit.)B. Competitive UseCompetitive use means any organized, sanctioned, or structured use, event, or activity on publiclands and related waters in which two or more contestants compete and either or both of thefollowing elements apply:(1) Participants register, enter, or complete an application for the event.(2) A predetermined course or area is designated.(See Glossary definition of Participant.)One or more contestants challenging an established record (e.g., speed or endurance) is also acompetitive use. Examples of competitive events include off-highway vehicle (OHV) races,horse endurance rides, mountain bike races, rodeos, poker runs/rides, orienteering, land speedrecords, and multi-element adventure events.Competitive events may also be commercial. (See Chapter 1, Section III.G.2.b., CompetitiveUse Fees.)C. VendingVending is a type of commercial use defined as a temporary, short-term, nonexclusive, revocableauthorization to sell goods or services on public lands and related waters in conjunction with arecreation activity or at a recreation site. Vending permits are nonexclusive in that the permitteehas no expectation of exclusive use; the Bureau of Land Management (BLM), nevertheless,retains the ability to limit the number of vendors. Vendor permits do not authorize permanentBLM HANDBOOKSupersedes Rel. 2-295Rel. 2-30011/17/14

H-2930-1 BLM Recreation Permit and Fee Administration Handbook (Public)1-3structures and do not grant preferential rights for renewal or any possessory interests in realproperty on the public lands and related waters. The authorized officer (AO) must placestipulations on the SRP to provide for the health and safety of vis

MANUAL TRANSMITTAL SHEET Release 2-300 Date 11/17/2014 Subject H-2930-1 Recreation Permit and Fee Administration Handbook 1. Explanation of Material Transmitted: This release transmits a revised Recreation Permit Administration Handbook which rep