Resource planning greatly strengthens a tribe’s opportunity to sustain tribal vision and resources of value. There are three general levels of planning: strategic, program, and project (Figure FM-1). The levels support each other. Resource program plans are tied (or tiered) to the strategic plan, and each program plan generates project plans which lead to onthe-ground activities.

A program level Forest Management Plan (FMP) ideally operates under a strategic Integrated Resource Management Plan (IRMP). This allows for decisions made in the FMP to be consistent with overall tribal objectives. Both plans as they apply to tribes are discussed in the following sections.

Forest Management Planning in Indian Country

An FMP is the ‘principal document’ (25 USC 3103), between the United States as trustee and the tribal owners, which directs the management of reservation forest resources. The plan sets forth the trust standards for the management, monitoring and the protection of valued forest resources on trust lands. It is the key document which seeks to ensure the sustainability and health of the forest while meeting tribal landowner visions, goals and objectives. In addition, it is recognized by many as a key element in the attainment of tribal aspirations for self-governance and its importance has been acknowledged by the United States Congress through appropriation of special funding since Fiscal Year 1985. The Congress also showed its support when it formally mandated planning in 1990 with the enactment of the National Indian Forest Resources Management Act (NIFRMA, Title III of P.L. 101-630). This Act clearly defined the BIA’s planning responsibilities on Indian forest lands and increased our planning responsibilities by an additional ten million acres through the inclusion of all forest lands, not just commercial forest land.

Although support is provided by the Congress, the BIA continues to be challenged to fulfill the planning mandate which is essential to protect trust resources.

Typically an FMP contains an array of information regarding the forest resources and the plan to protect and manage the forest. Information included in a plan generally consists of: a summary of the forest resources and the trends occurring on the forest, the allowable annual cut and schedule of harvest plans to restore and redevelop forest lands forest protection plans regarding fire, insect, disease and trespass tribal benefits resulting from implementation of the plan.

Status of Forest Management Planning

Since 1983 the Division of Forestry has annually compiled and reported forest management planning statistics in the Status of Forest Management Inventories and Planning report to track our accomplishments, deficiencies and funding needs. As titled, the report focuses on two specific functions - forest management inventory and forest management planning. Forest management inventories are used to generate and benchmark forest density statistics, measure and monitor forest change, determine forest growth and yield capacity, measure mortality and harvest, ensure sustained-yield management of the forest and to measure the forest’s trend toward future desired objectives. The FMP documents the tribal landowners’ desired goals, objectives and visions, thereby determining and driving the intensity of applied management actions. Report statistics for each function are displayed by Forest Category1 and associated timberland2 and woodland3 land classes which comprise forest land.4

As of September 30, 2004 the BIA recognizes approximately 18.7 million acres of forest land on 321 reservations. Of this acreage, 18.5 million acres are reported to be in trust status. Since 1995 there has been a net increase of approximately 1.9 million acres in forest land due to establishment of new reservations and better spatial data and analysis of imagery on existing reservation lands.

The trend for the number of forest inventories completed on timberland and woodland on reservations has remained fairly steady over the past four years. Inventories have been completed on 68% (141 of 207) of timber reservations and 45% (91of 201) of woodland reservations and account for 95% (7.6 of 8.0 million) of the timberland acres and 76% (8.0 of 10.7 million) of the woodland acres.

As reported, 80% (6.4 of 8.0 million) of timberland acres and 27% (2.8 of 10.6 million) of woodland acres are covered by approved plans, for an overall compliance of 50%. However, only 43% (89 of 207) of timberland reservations and 18% (36 of 201 reservations) of woodland reservations have plans. This is far below our goal and mandate of 100%. Despite these statistics, 85% of Category 1 reservations and 87% of associated timberland acres are covered by a current FMP. This indicates that most of the larger timbered reservations are maintained.

The Division of Forestry has set a target date of 2015 to have FMPs in place on all Indian trust forest land. To achieve this goal the Division has adopted the Indian Forest Management Assessment Team’s (IFMAT II) December 2003 recommendation that plans will remain current until amended. To ensure plans continue to represent tribal goals, periodic reviews of forest management policies and the state or condition of the forest resource will be conducted. This recommendation is being added to the Indian Affairs Manual (53 IAM Chapter 2 Management Planning) and will assist in meeting of our planning goals.

The Division of Forestry has also launched a Forest Management Planning Initiative to address the lack of forest management plans on Category 2, 3 and 4 forested reservations. Specific FMP guidelines, checklists and example templates have been developed to streamline and speed the planning process and to assist staff in completing plans on these reservations. This streamlined process, while not directly addressing the IFMAT II recommendation that BIA technical services capacity be increased to at least 1991 levels, will greatly assist the Division in achieving its 2015 planning goals and mandate.

Integrated Resource Management Planning – An Avenue to Resource Sustainability

A Tribal IRMP is a long-range, strategic plan which unifies and harmonizes management actions applied to tribal natural resources, and other resources of value. It is a tribal policy document, based on the vision the tribe has for its resources. The IRMP provides a planning avenue for sustaining a tribe’s vision and resources of value. It describes management activities to be undertaken by tribal and federal resource managers, and is the umbrella plan for all resource planning and management activities.

As part of the BIA’s long-term goal to help tribes assert their sovereignty, the Tribal IRMP Development Project assists tribes in developing strategic resource policies. The IFMAT II report recognizes this benefit to tribes and recommends accelerated development of tribal IRMPs. Project funds are available to tribes to assist them in starting or continuing IRMP initiatives.

The IRMP Development Project began in 1996, and tribal personnel from around the country have been heavily involved since then. Two trailblazing and pivotal publications were produced in 1998: Guidelines for Integrated Resource Management Planning in Indian Country (Second Edition, 2001) and A Tribal Executive’s Guide to Integrated Resource Management Planning (Second Edition, 2005).

Proposal and Funding History

A total of 274 IRMP proposals were submitted during Fiscal Years 1998-2005. One hundred five proposals, representing 76 tribes, received Development Project funding. Total amount awarded was $4.8 million, of $14.3 million requested. A new annual project appropriation of $1.0 million beginning in Fiscal Year 2004 allowed funding of 21 IRMP proposals that year, and 25 in Fiscal Year 2005, compared to ten funded proposals in previous years. Twenty-seven tribes have implemented an IRMP, and 62 tribes are developing an IRMP.

Expression of Tribal Sovereignty

Unlike an FMP, which is mandated by federal regulation, IRMP creation is a tribal decision. Tribes may unilaterally determine the planning process, and at tribal discretion seek outside assistance to complete the plan. Tribal creation and use of their IRMP to develop and regulate land management facilitates self-governance and assures sovereign control of assets.

Integrated Planning for All Resources of Value

Crucial for successful IRMP development is an examination of relationships among the various natural resources and their uses, economic impacts and trends, cultural needs, and social forces. The ultimate IRMP goal is to balance natural resource management actions to reflect the economic, cultural, social, spiritual, and natural resource values of tribal members. The process identifies, assesses, and compares all resources before land use or resource management decisions are made. Potential decisions which affect the land are considered together, so that each decision’s impact is weighed against the others. Because all possible uses are considered simultaneously, potential conflicts can be dealt with before they occur. An IRMP translates the tribe’s vision into a concrete description of desired future conditions of tribal resources, and management actions to achieve those conditions.

Planning Requirements

The following are necessary for successful IRMP completion: Strong commitment of tribal executives Specification of the IRMP process scope and format Team (integrated) approach to planning and management Acceptance and commitment of program managers Effective communication lines A champion of the process Managerial and technical resources Support systems (inventory data, GIS, GPS, office automation) Public involvement Adequate funding

Successful IRMP

A successful IRMP is flexible and can be modified when changes in tribal needs, vision, goals, or objectives occur. Economic conditions, land or other resource acquisition, catastrophes, and new information may also warrant changes. The IRMP as a living document remains abreast of changing conditions.

The planning and management environment must be dynamic, incorporating an active review and modification process. The IRMP and other plans are evaluated to assure that they remain in balance with each other. If one plan is modified, a formal review process ensures that it stays in balance with other plans.

Successful IRMP’s are functional across programs, departments, and organizational lines. Isolation of programs and organizational structure is minimized; distance and physical separation of personnel are overcome; turf protection and resistance to a team approach diminish; programs are no longer exclusively project-oriented; conflicting methods and standards are eliminated.

Central IRMP Benefit

The central benefit of integrated resource management is better management: management in harmony with tribal members’ vision for the future. A higher level of accountability by officials to their constituencies develops. Higher levels of participation and understanding of resource management and sustainability occur. The integrated approach leading to an IRMP results in a strong expression of tribal control over resources and further advancement toward tribal sovereignty.


Timothy E. Moriarity, Chief Forester, Branch of Forest Resources Planning, BIA.
David W. Wilson, Senior Forest Inventory Specialist, Branch of Forest Resources Planning, BIA. Robert P. Bizal, National IRMP Coordinator, Branch of Forest Resources Planning, BIA.