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Abbreviated FLPMA. 90 Stat. 2744, 43 U.S.C. § 1701 et seq., 'established a policy in favor of retaining public lands for multiple use management.' Lujan v. National Wildlife Federation, 497 U.S. 871, 877 (1990). 'Multiple use management' is a deceptively simple term that describes the enormously complicated task of striking a balance among the many competing uses to which land can be put, including, but not limited to, recreation, range, timber, minerals, watershed, wildlife and fish, and [uses serving] natural scenic, scientific and historical values. 43 U.S.C. § 1702(c). A second management goal, 'sustained yield,' requires BLM to control depleting uses over time, so as to ensure a high level of valuable uses in the future. § 1702(h).

To these ends, FLPMA establishes a dual regime of inventory and planning. Sections 1711 and 1712, respectively, provide for a comprehensive ongoing inventory of federal lands, and for a land use planning process that 'project[s]' 'present and future use,' § 1701(a)(2), given the lands' inventoried characteristics. Of course not all uses are compatible. Congress made the judgment that some lands should be set aside as wilderness at the expense of commercial and recreational uses. A pre-FLPMA enactment, the Wilderness ...

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