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Pending Appointment
Director, Bureau of Land Management
FY 16-17: Agency Priority Goal
Renewable Energy Resource Development
Priority Goal
Increase the approved capacity for production of energy from domestic renewable resources to support a growing economy and protect our national interests while reducing our dependence on foreign oil and climate-changing greenhouse gas emissions.
By September 30, 2017, increase approved capacity authorized for renewable (solar, wind, geothermal, and hydropower) energy resources affecting Department of the Interior managed lands, while ensuring full environmental review, to at least 16,600 Megawatts (since the end of FY 2009).
Energy Natural Resources and Environment
DOI.gov
Contributing Programs & Other Factors
Related Goals
Goal Overview
Problem or opportunity being addressed
As manager of one-fifth of the nation's landmass and 1.7 billion acres of the outer continental shelf, the Department of the Interior plays a major role in implementing the Obama Administration's "Smart from the Start" strategy to develop all appropriate sources of renewable and conventional energy on U.S. public lands. Responsible development of conventional and renewable resources on Interior managed lands and waters involve processing applications in a focused manner with full environmental analysis and public review. By advancing renewable energy, Interior helps America produce more energy at home, reducing our dependency on foreign oil while supporting a growing economy, creating jobs, and reducing greenhouse gas emissions.
Onshore, the Bureau of Land Management (BLM) has identified 20.6 million acres of public land with wind energy potential in 11 western states, 30 million acres with solar energy potential in six southwestern states, and 111 million acres of public land in western states and Alaska with geothermal resource potential. Offshore, the Bureau of Ocean Energy Management (BOEM) manages the Outer Continental Shelf, 1.7 billion acres of federal-offshore lands with enormous wind-energy potential.
In addition, Interior reduces energy consumption within its own buildings at over 1,000 Interior sites nationwide ranging from visitor centers to wildlife refuges and tribal facilities, and increasingly self-generates energy by installing rooftop solar panels at Interior owned sites as appropriate.
Relationship to agency strategic goals and objectives
This goal ties directly to Mission Area 3, "Powering Our Future and Responsible Use of the Nation's Resources," of the Department of the Interior's FY 2014-2018 Strategic Plan. The priority goal helps Interior meet Goal 1, "Secure America's Energy Resources," through responsible development of renewable energy on our public lands by facilitating environmentally appropriate solar, wind and wave, geothermal, and hydropower projects in the right ways and right locations.
Key barriers and challenges
Permitting in an environmentally responsible manner sometimes results in changes to applicants' project proposals. For example, proposed projects may be rejected or reduced in size and scope to avoid or minimize impacts to tribal and cultural resources, threatened and endangered species and their habitat, viewsheds, and other areas designated for protection by Congress, the President, or the Secretary of the Interior. Additionally, renewable energy companies themselves sometimes scale down, modify timelines, develop projects in phases, or otherwise modify or withdraw projects for reasons unrelated to Interior's permitting process. By tracking progress on a quarterly basis, Interior monitors emerging issues and challenges associated with renewable energy projects. In recent years, private companies' applications for renewable energy projects on Interior lands have declined due to difficulties in securing financing and obtaining power purchase agreements with electric utility companies. Additionally, technology and transmission constraints, such as an applicant needing to upgrade a transmission line, impact the number of renewal energy applications and approvals.
BLM developed the goal in conjunction with the Assistant Secretary for Land and Minerals Management as well as other Federal agencies including DOD, USDA, EPA, NOAA; Interior bureaus including BIA, FWS, NPS, USGS; and States, local entities, conservation groups, industry and others engaged in advancing the Administration's 'all-of-the-above' strategy to develop domestic energy resources and to achieve one of the Secretary of the Interior's top priorities for "Powering Our Future." Additional information is available via http://www.blm.gov/wo/st/en/prog/energy/renewable_energy.html.
This goal tracks the approval of megawatts of capacity authorized for generation and transmission of power from renewable energy resources (solar, wind, and geothermal). Offshore, the Bureau of Ocean Energy Management (BOEM) conducts lease sales for wind and wave renewable energy development as well as offshore energy transmission lines. To assess sites on the Outer Continental Shelf (OCS) for potential renewable energy projects, BOEM works closely with State, tribal and local stakeholders and industry to develop and implement a regulatory framework for offshore renewable energy and to identify Wind Energy Areas that have the highest potential wind resources and fewest competing use conflicts. Focusing development in these pre-approved areas expedites the permitting and approval process. More information is available at http://www.boem.gov/Renewable-Energy/.
Onshore, Interior maintains a renewable energy project list focusing on those applications whose progress, in terms of the necessary public participation and environmental analysis under applicable Federal and state laws, most likely will lead to timely project approval that are provided through the BLM renewable energy website at http://www.blm.gov/wo/st/en/prog/energy/renewable_energy.html. Interior tracks these projects through multi-bureau meetings to ensure issues are resolved in a timely manner. Additionally, for every project on the list, BLM posts the status at each of the following critical stages of the renewable energy project approval cycle:
Notice of Intent: formal announcement by Interior of intent to prepare an environmental analysis.
Release of draft environmental assessment documents: draft Environmental Analysis (EA) or Environmental Impact Statement (EIS) is released for public comment and review. Every renewable energy development project must include either an EA or EIS to comply with the National Environmental Policy Act (NEPA) and other applicable Federal and state environmental laws.
Release of final environmental assessment documents: Final EA or EIS released.
Issue of Decision and Authorization: every renewable energy development project must have a decision issued in the form of either a (1) Decision Record (DR) and Finding of No Significant Impact (FONSI) or (2) Record of Decision (ROD). Additionally, for wind and solar projects, a Right of Way (ROW) authorization must be issued based on the DR or ROD.
The Bureau of Land Management (BLM) authorized one additional project totaling 100 megawatts (MWs) bringing the cumulative total to 16,062 MW approved since the start of FY 2009. The 60 MW Dixie Meadows Geothermal project was delayed due to scheduling issues, and is now expected to be approved during Q1 of FY 2017.
The Department continues review of utility scale solar projects in addition to wind energy and geothermal proposals. DOI anticipates approving 946 MWs of renewable energy capacity in FY 2017. Additionally, BOEM is continuing to conduct surveys, leases, and reviews for future offshore wind projects; for more information refer to: http://www.boem.gov/Renewable-Energy/ and corresponding "fact sheets".
The ability to approve additional capacity for power generation and/or transmission depends significantly upon the viability of the applicant, and the environmental suitability of the project and site. The Department ensures full environmental and cultural resource review when assessing renewable energy projects for approval. These activities must be adequately resourced by the project proponent to avoid delays in approval and possible withdrawal of proposals. Assistance from the National Park Service and the Fish and Wildlife Service has been an important addition to the success of authorizing renewable energy projects. The Department continues to look at other approaches to facilitate development of potential projects.
Number of megawatts of approved capacity authorized on public land and the OCS for renewable energy development while ensuring full environmental review (cumulative).
The key indicator, "Amount of approved capacity authorized," quantifies the megawatts of electricity authorized by Interior under the development plan for a particular renewable energy project, transmission lines, or other connected actions either wholly or partly on Interior managed lands and waters. Quarterly progress depends upon each proposal successfully satisfying the technical feasibility and environmental suitability requirements, including required environmental impact assessments and public comment stages. Each individual proposal progresses at its own pace in meeting these requirements. The Department includes the count of megawatts from the project's proposals in the priority goal results once a decision on the project is released in the form of a Record of Decision or Finding of No Significant Impact. The following chart shows the approved renewable energy capacity authorized since the start of this priority goal:
Megawatts of Capacity Approved (cumulative across the years listed)
Data Accuracy and Reliability
The Department ensures the accuracy and reliability of the performance data in measuring progress towards its Agency Priority Goals, in accordance with the five data quality specifications in the GPRA Modernization Act of 2010 for:
Means used to verify and validate measured values: All reported performance data is subject to the data verification and validation standards initially published in 2003 and reissued in 2007 (see https://www.doi.gov/performance/data-validation-and-verification). Implementing organization heads or chief officials confirm in writing the validity of the data. In the case of Agency Priority (Performance) Goals, senior officials in the implementing organization personally present the data on a quarterly basis to the senior Departmental leadership.
Sources for the data: In response to data calls, bureau program managers provide performance data based on their observations that can include extrapolations of selected representative samples or past history adjusted for estimates of changing conditions. These data are tracked and maintained in separate systems, including spreadsheets. Following review by the bureau, data is collected, reviewed, integrated, and maintained by the Department's Office of Planning and Performance Management in its Annual Performance Plan and Report (APP&R) that is available at the Department's Budget and Performance Portal (www.doi.gov/bpp), and on the www.performance.gov website. Project lists are maintained by the reporting bureaus on their websites at:
http://www.blm.gov/wo/st/en/prog/energy/renewable_energy.html
and http://www.boem.gov/Renewable-Energy/.
Level of accuracy required for the intended use of the data: Performance data reported in the Annual Performance Plan & Report and on http://www.performance.gov/ is used for management purposes, as a representative indicator of progress in relation to a target or goal established by the corresponding implementing organization. The accuracy of the data is that which is considered necessary to provide a reasonable representation of the progress made relative to a target or goal for discussion purposes, so as to help:
determine if the progress is considered adequate
provide understanding of the ability for the processes and methods being implemented to achieve the goal
indicate if any further exploration or evaluation is needed to better ensure achievement of the goal; and
whether alternative action, including adjusting funding levels, facilities, workforce, IT capabilities, etc., is needed to help better ensure achievement of the goal.
Limitations to the data at the required level of accuracy: Performance data is subject to potential errors from: the use of estimations and extrapolations, especially where direct measurement is impractical and/or considered too costly; individual observation; miscommunication; and/or failure to effectively employ the guidance described in the performance measure template or the "Indicator" description in http://www.performance.gov/. However, based on multiple review levels and accuracy certifications, we do not believe these limitations to be significant.
How the agency has compensated for such limitations if needed to reach the required level of accuracy: Along with the implementing organization's official assurance of faithfully employing the data verification and validation standards, submitted data is reviewed within the context of the scope and nature of the activity, plans, and past experience to help confirm accuracy. For those performance measures employing estimation and extrapolations, a repeatable means for these calculations is used based on industry estimation techniques. Following review and verification by the submitting bureau, the data is reviewed within its corresponding trends and programmatic context by the Department's Office of Planning and Performance Management to determine if further consultation with the data provider is necessary to adjust or correct the reported data before publication. Senior management and leadership consider this level of accuracy to be acceptable in their use of the data. Past experience in using the data, historical trend and programmatic context assessments, and bureau data quality certifications indicate that the limitations are considered minor and compensating measures are not considered necessary.
In addition to employing the Department's data validation and verification standards, and internal reviews of submitted data, the best "test" of the data's accuracy is in its use. Agency Priority (Performance) Goal data is reviewed during quarterly status reviews where senior officials report their data directly to the Department's senior leadership and is made publicly available through http://www.performance.gov/.
Indicator target and actual value information
Fiscal Year Quarter
Period Ending (Month, Year)
Actual Value
Explanation of Actual
2012-Q1 December, 2011 7000 7059
2012-Q2 March, 2012 7000 7059
2012-Q3 June, 2012 7700 7724
2012-Q4 September, 2012 7800 7863
2013-Q1 December, 2012 10900 10933
2013-Q2 March, 2013 12500 12573
2013-Q3 June, 2013 13700 13746
2013-Q4 September, 2013 13700 13786
2016-Q1 December, 2015 15914
2016-Q2 March, 2016 15962
2016-Q3 June, 2016 15962
2016-Q4 September, 2016 16062
2017-Q1 December, 2016
2017-Q2 March, 2017
2017-Q3 June, 2017
Indicator Statement:
Indicator Overview:
Unit Of Measurement: Megawatts
Indicator Reporting Frequency: Quarterly
Indicator Direction: INCREASING
Contributing Programs within the agency
The following bureaus within Interior contribute to this goal:
Bureau of Land Management (BLM): onshore solar, wind, geothermal, and transmission projects (http://www.blm.gov/wo/st/en/prog/energy/renewable_energy.html).
Bureau of Ocean Energy Management (BOEM): offshore wind, wave, and transmission projects (http://www.boem.gov/Renewable-Energy/) .
Bureau of Indian Affairs (BIA): onshore renewable energy and transmission projects on Tribal lands (http://www.indianaffairs.gov/WhoWeAre/AS-IA/IEED/DEMD/RO/index.htm).
Fish and Wildlife Service (FWS): assists other agencies and the energy industry in environmental review to avoid and mitigate the impacts of renewable energy development on wildlife. Through an intensive public process, FWS issued onshore wind energy guidelines with help from the wind energy industry, states, and wildlife conservation groups (http://www.fws.gov/ecological-services/energy-development/energy.html).
National Park Service (NPS): ensures the safeguarding of viewsheds and issues related to national parks and special status areas near proposed renewable energy sites by participating in the decision mak­ing process for project approval (https://www.nature.nps.gov/geology/energy/index.cfm).
Contributing programs or partners outside the agency
Interior works with a number of agencies coordinating renewable energy work including other Federal, State and local land managers and resource management agencies with responsibilities in the outer continental shelf:
Department of Energy (DOE): provides training, tech­nical assistance, policy support, transmission planning, siting of large scale projects, research and development of new technologies, and spon­soring research and development of wind turbine impacts on wildlife.
Department of Defense (DOD): Interior works with DOD on the siting review of onshore and offshore renewable energy projects that may potentially impact the DOD mission and is assisting the DOD in the identification of renewable energy projects on DOD withdrawn lands that could potentially be jointly permitted by Interior and the DOD.
Department of Agriculture (USDA): coordination for renewable energy development on the significant number of Forest Service acres adjacent to Interior's lands.
Tribal governments: Interior, through its Bureau of Indian Affairs, coordinates with tribal governments for any renewable energy or transmission line projects on tribal lands.
Secure America's Energy Resources
We will promote responsible development of renewable energy and ensure safe and environmentally responsible access to natural resources.
Ensure Environmental Compliance and Safety of Energy Development Activities
Ensure environmental compliance and the safety of energy development.
Four Department bureaus, Office of Surface Mining Reclamation and Enforcement (OSMRE), Bureau of Safety and Environmental Enforcement (BSEE), Bureau of Land Management (BLM), and Bureau of Ocean Energy Management (BOEM), oversee responsible energy development on private, public, and tribal lands and waters. Safety, environmental, and conservation compliance activities safeguard the Nation's onshore and offshore energy resources, and mitigate the effects of mining on natural resources, including the protection and restoration of coal effected lands. These efforts are also key to maintaining the public's confidence that energy development can be and is subject to strong and effective oversight.
Develop Renewable Energy Potential
Develop renewable energy potential.
As four Department bureaus, BLM, BOEM, BSEE and the Bureau of Reclamation (BOR), work to promote domestic energy production by ensuring that renewable energy resources on the Department's managed lands and waters are developed in an environmentally responsible manner. Standing up new sources of clean energy generation and facilitating the construction of new or upgraded transmission networks are helping to create new industries and supply chains, driving economic growth and job creation, and helping provide for a cleaner energy future.
Manage Conventional Energy Development
Manage conventional energy development.
The DOI oversees vast resources that, when developed the right way and in the right places, support an "all of the above" energy strategy that expands the production of energy at home, promotes energy security, and helps drive the economy and job growth. The Department's landscape-level approach focuses on environmentally responsible energy development.
Account for Energy Revenue
Account for energy revenue.
ONRR disburses mineral and renewable energy revenues to a number of entities. Distributions to the Land and Water Conservation Fund, the Historic Preservation Fund, and the Reclamation Fund help ensure America's natural resources, landscapes, and rich history are available to be enjoyed by current and future generations. Distributions to states are used to fund large capital projects such as schools, roads, and public buildings. Revenues collected from leases on Indian lands work directly to benefit members of the Indian community.
Agency Priority Goals
FY14-15 Renewable Energy Resource Development
Renewable energy resource development.
By September 30, 2015, increase approved capacity authorized for renewable (solar, wind, and geothermal) energy resources affecting Department of the Interior managed lands, while ensuring full environmental review, to at least 16,500 Megawatts (since 2009).
The Obama Administration's coordinated strategy to develop all appropriate sources of renewable and conventional energy on U.S. public lands calls for development of onshore and offshore renewable energy under a 'Smart from the Start' approach that prioritizes and processes existing applications in a coordinated, focused manner with full environmental analysis and public review.
As manager of one-fifth of the nation's landmass and 1.7 billion acres of the outer continental shelf, the U.S. Department of the Interior has the resources to help America produce more energy at home, thereby supporting a growing economy and job creation and reducing dependence on foreign oil and increasing sustainable practices with reduced greenhouse gas emissions. Secretary Sally Jewell has placed a priority on "Powering Our Future," emphasizing the responsible development of conventional and renewable resources on our nation's public lands and waters.
Onshore, the Bureau of Land Management (BLM) has identified 20.6 million acres of public land with wind energy potential in 11 western states, 30 million acres with solar energy potential in six southwestern states, and 111 million acres of public land in western states and Alaska with geothermal resource potential. Offshore, the Bureau of Ocean Energy Management (BOEM) manages the Outer Continental Shelf, 1.7 billion acres of federal-offshore lands with enormous wind-energy potential, and approved in 2011 the construction plan for Cape Wind Energy off the coast of Massachusetts.
In addition to the multiple renewable energy efforts on public lands, the Department of Interior is reducing energy consumption within its own buildings while also self-generating renewable energy at over 1,000 Interior sites nationwide, including locations such as visitor centers, wildlife refuges, recreation centers, and tribal facilities. Developing such renewable energy resources responsibly could help support a growing economy and protect our national interests while reducing our dependence on foreign oil and climate-changing greenhouse gas emissions.
As the means for advancing the Administration's 'all-of-the-above' strategy to develop domestic energy resources, realizing one of the Secretary of the Interior's key priorities in creating a new energy frontier and as reflected in Interior's Strategic Plan's mission area to "Powering Our Future and Responsible Use of the Nation's Resources," this goal continues to expand upon the efforts started with the initial FY 2010/2011 Priority Goal to, "Increase approved capacity authorized for renewable (solar, wind, and geothermal) energy resources on Department of the Interior managed lands, while ensuring full environmental review, by at least 9,000 megawatts through 2011." As part of securing America's energy future, DOI is helping to move our nation toward a clean-energy economy. At Interior, this means changing the way we do business by opening our doors to responsible development of renewable energy on our public lands. This means using a 'Smart from the Start' approach that prioritizes and processes existing applications in a coordinated, focused manner with full environmental analysis and public review. Efforts include facilitating environmentally appropriate renewable-energy projects involving solar, wind and waves, geothermal, and hydropower. These resources, developed in the right ways and the right places, will help curb our dependence on foreign oil, reduce our use of fossil fuels and promote new industries and jobs here in America.
Renewable energy projects, especially solar and wind, are complex. The Department is committed to permitting renewable energy projects on public lands in an environmentally responsible manner. As a result, proposed projects are sometimes rejected or reduced in size and scope to avoid or minimize impacts to tribal and cultural resources, threatened and endangered species and their habitat, or areas near or adjacent to lands designated by Congress, the President, or Secretary for the protection of sensitive viewsheds, resources, and values that could be adversely affected by development. Additionally, renewable energy companies sometimes decide to scale down, modify timelines and develop their projects in phases, or otherwise modify or withdraw projects for reasons unrelated to the permitting process.
By tracking progress on a quarterly basis, Interior is aware of the emerging complex issues and challenges associated with the formulation of renewable energy projects that require time and resources to address—including for example, rerouting and modification of plans to avoid impacts to natural resources like sensitive avian and wildlife species and tribal concerns. Further, while Interior agencies play a critical role in facilitating the siting and permitting of renewable energy projects on public lands, there are other factors that impact a potential project's progress, including the project proponent's ability to secure financing and to obtain power purchase agreements with electric utility companies. Technology and transmission constraints, such as an applicant needing to upgrade a transmission line, can also impact the overall schedule.
This goal includes a broad number of stakeholders within Interior and externally. It is a continuation of a FY 2012-2013 goal that was developed by BLM in concert with the Assistant Secretary for Land and Minerals Management. Other Federal agencies including DOI, USDA, EPA, NOAA; Interior bureaus including FWS, NPS, USGS; as well as States, local entities, conservation groups, industry and others are engaged to advance the Administration's 'all-of-the-above' strategy to develop domestic energy resources and to achieve one of the Secretary of the Interior's top priorities for "Powering Our Future."
FY14-15 Oil and gas resource management
Oil and gas resources management. By September 30, 2015, the Bureau of Land Management (BLM) will increase the completion of inspections of federal and Indian high risk oil and gas cases by 9 percent over FY 2011 levels, which is equivalent to covering as much as 95% of the potential high risk cases.
The inspection of high risk producing oil and gas cases is paramount to help ensure that hydrocarbon production on federally managed lands are properly accounted for and results in accurate royalty payments to the public and Indian owners of such minerals.Oil and gas production on federally supervised lands represent a significant part of the nation's hydrocarbon production.Operating regulations at 43 CFR 3161.3 (a) require the BLM to inspect all leases which produce high volumes of oil or natural gas and those leases that have a history of non-compliance at least once a year.The high risk cases are determined by four risk factors: production rating; number of missing Oil and Gas Operations Reports (OGOR); non-compliance rating; and, last production inspection date rating.
This effort is a component of addressing the deficiencies identified in the GAO High Risk report, which identified the areas for needed improvement including:
ensuring data on production verification and royalties are consistent and reliable,
meeting goals for oil and gas verification inspections, and
ensuring that informal employee training is supported by formalized training courses offered on a consistent basis.
Achieving a high rate of inspecting high risk producing cases will advance the BLM's mission by ensuring that oil and gas operations are conducted in compliance with lease terms, with the regulations in title 43 CFR 3161.3 (a), and all other applicable regulations. The BLM is charged, in Section 101. (a) of the Federal Oil and Gas Royalty Management Act of 1982, with procedures to ensure that each federal and Indian lease site which is producing or is expected to produce significant quantities of oil or gas in any year or which has a history of non-compliance be inspected at least once annually.
The Bureau is limited in its ability to meet the requirement of inspecting all high risk cases by the number of certified inspectors available to inspect these cases. Competing priorities take time from these inspectors in completing high risk production inspections. High priority drilling and abandonment inspections must be completed prior to high risk production inspections. In addition the Bureau has historically had a high turnover of certified inspectors.
The Government Accountability Office (GAO) and the Department of the Interior Office of Inspector General (OIG) has pointed out the failure of the BLM to adequately ensure production of federal and Indian minerals. The BLM answered the requests from both the GAO and OIG. This Priority Goal was created to help address some of the identified concerns while providing a forum by which the Department can continue to track the progress toward addressing the other concerns identified by GAO. The goal was developed in concert with the White House and released with the President's FY 2013 Budget.
Strategic Objective: