346.0469549 L72bmp 1999 Legislative Audit Division State of Montana Report to the Legislature Performance Audit December 1999 STATE DOCUMENTS COLLECTION rtti 12 2001 MONTANA STATE LIBRARY 1515 E. 6th AVE. MONTANA 59620 HELENA, Block Management Program Department of Fish, Wildlife and Parks This performance audit contains 14 recommendations for improvement of the Block Management Program. Recommendations include: • Developing goals and objectives to measure program success or outcomes. Coordinating with other programs addressing access. Re-evaluating the base payment system used to compensate landowners enrolled in the Block Management Program. Direct comments/inquiries to: Legislative Audit Division Room 135, State Capitol PO Box 201705 MT 97P-10 Helena 59620-1705 Help eliminatefraud,waste, and abuse in state government. Call the Fraud Hotline at 1-800-222-4446 statewide or 444-4446 in Helena. MONTANASTATELIBRARY 3 0864 001 5 7150 7 PERFORMANCE AUDITS Performance audits conducted by the Legislative Audit Division are designed to assess state government operations. From the audit work, a determination is made as to whether agencies and programs are accomplishing their purposes, and whether they can do so with greater efficiency and economy. In performing the audit work, the audit staffuses audit standards set forth by the United States General Accounting Office. Members ofthe performance audit staffhold degrees in disciplines appropriate to the audit process. Areas ofexpertise include business and public administration, statistics, economics, computer science, and engineering. Performance audits are performed at the request ofthe Legislative Audit Committee which is a bicameral and bipartisan standing committee ofthe Montana Legislature. The committee consists ofsix members ofthe Senate and six members ofthe House ofRepresentatives. MEMBERS OF THE LEGISLATIVE AUDIT COMMITTEE LEGISLATIVE AUDIT DIVISION Scott A. Seacat, Legislative Auditor Deputy Legislative Auditors: John W. Northey, Legal Counsel Jim Pellegrini. Performance Audit Tori Hunthausen, IT & Operations Manager James Gillett, Financial-Compliance Audit December 1999 The Legislative Audit Committee ofthe Montana State Legislature This is ourperformance audit ofthe Block Management Program administered by the DepartmentofFish, Wildlife and Parks. This reportprovides information tothe legislature concerningthe history ofthe program and recommendations forincreasing efficiency and effectiveness. Overall it appears the enhanced Block Management Program has opened some previously closed landto free public hunting. Responses fromthe DepartmentofFish, Wildlife and Parks are contained at the end ofthe report. We wishto express our appreciationtothe department stafffortheircooperation and assistance. Respectfully submitted, & / r - I ScottA. Seacat Legislative Auditor Room 135. State Capitol Building, PO Box 201705 Helena MT59620-1705 Phone (406) 444-3122 FAX (406) 444-9784 E-Mail [email protected] Legislative Audit Division Performance Audit Block Management Program Department of Fish, Wildlife and Parks The member ofthe audit staff involved in this audit were Mary Zednick. 111 Table of Contents List ofFigures and Tables Page v Appointed and Administrative Officials Page vi Report Summary Page S- Chapter I - Introduction Introduction Page 1 Audit Objectives Page 1 Audit Scope and Methodologies Page 1 Compliance Page 3 Management Memorandum Page 3 Areas for Further Study Page 4 Use ofComputer Software Page 4 Comparing Block Managementto Board of Outfitter Records Page 4 Report Organization Page 4 Chapter II - Background Introduction Page 5 Department Organization Page 5 Decentralized System Page 5 Block Management Program Staffing Page 6 Region 3 Block Management Coordinator Page 7 Warden Time Spenton Block Management Page 8 Wildlife Biologist Time Spenton Block Management Page 8 . . Summary Page 8 Revenues and Expenditures Page 8 HowMuch Private Land is Open to Public Hunting? Page 10 Chapter III - Block Background Page 1 Management Then and Now Program Formally Organized in 1985 Page 1 Program Guidelines and Administrative Rules Written Page 12 Block Management Participation Statistics Page 12 Page i 566881 Table of Contents Enhanced Block Management Program Created Page 13 House Bill 195 Passed Page 14 Incentives Committee Recommended Compensation Amounts Page 14 Administrative Rules Created Page 1 Block ManagementNow Page 1 Number ofCooperators Enrolled in the Program Page 1 Number ofAcres Enrolled in the Program Page 17 Program Administration Page 1 Contract Renewal and Enrollment Page 1 Permission to Hunt Block Management Areas Page 19 Regional Tabloids and Maps Created Page 19 BMAs Signed Page 20 BMA Monitoring during Hunting Season Page 20 EndofSeason Activities Page 20 Didthe Enhanced Program Open More Land for Hunting? .... Page 20 Landowners Responses Showed Some Land was Openedto Public Hunting Page 2 Land Wouldhave Closed ifnot for Block Management Page 22 Conclusion Page 23 Chapter IV - Block Introduction Page 25 Management Effectiveness Measuring Program Success Page 25 Mission Statement and Goals Created Page 25 Criteriato Measure Program Success Needed Page 26 Other Department Programs Addressing Access Page 28 Upland Game Bird Habitat Enhancement Program (UGBP) Page 28 Habitat Montana Program Page 29 Cooperators in Block Management and Another Program Page 30 Monitoring Hunter Use Page 33 Advertisingthe Areas Page 34 Summary Page 34 Private Land/Public Wildlife Council to Review Access Issues Page 36 Access Coordination Needed Page 36 Landowner Compensation Page 37 Page ii 1111 Table of Contents Current System does not Differentiate Impacts to Determine Compensation Page 37 Forms ofCompensation Otherthan Money Page40 Landowner Reasons forWanting to Enroll inthe Program Page40 WhyNo Longer Enrolled Page 4 Exploring Options Page42 ContractAmounts Which donot Fluctuate EveryYear Page 43 m Compensation forLandowners Aggregate Block ManagementAreas Page 44 DocumentationofEnrollment and Re-enrollmentof Landowners Page46 ProgramAccountability Page 48 Conclusion: Policies and Procedures Provide ProgramAccountability Page48 Outfitting on BMAs Page 49 FWP OutfitterUse Documentation Page49 Conclusion Page 5 Chapter V- Block Introduction Page 53 Management Efficiency CommunicationWith Landowners and Hunters Page 53 Tabloid Information Page 53 Map Information Page 55 Terminology Page 56 Summary Page 56 Locating BMAs Page 57 Landowner and Hunter Knowledge ofthe Program Page 58 HunterComments Page 58 Landowner Comments Page 59 Summary Page59 RoleofStaffin the Program Page 59 Role ofBiologists andWardens Page 60 Role ofthe Block Management Coordinators Could Be More Efficient Page 6 Summary Page 6 Improvements in Operating Efficiency Page 62 Efficiency Improvements Page 62 Page iii 1111 Table of Contents Compiling Information Using a Computer Page 64 Summary Page 64 Chapter VI - Conclusion Introduction Page 67 Some Additional Land was Opened to Public Hunting Page 67 Program Tangible Benefits Page 67 Conclusion Page 68 Agency Response DepartmentofFish, Wildlife and Park Page 69 Appendix A Hunters PageA- Appendix B Landowners Enrolled in the Program Duringthe 1998 Hunting Season Page B- Appendix C Responses from Landowners no Longer Enrolled inthe Program Page C- Appendix D Landowners Expressing an Interest in Enrolling in the Program Page D- Appendix E Landowners Who HaveNot Expressed an Interest in the Program Page E- 1 Page iv