Policy Corner - Monument Management, Employee Retention, & Costs of Living in Mendocino County

Hekia Bodwitch • August 9, 2024

Photo of Molok Luyuk by Mark Hoshovsky


Last month we were thrilled that the Bureau of Land Management (BLM) had filled the position of Monument manager for Berryessa Snow Mountain National Monument. Our excitement reflects our appreciation of the new manager’s skills. Kay-leigh Barntiz was previously the interim manager and is a regional expert. We look forward to working with Kay-leigh to develop and implement a Monument management plan.

Our excitement also reflects the challenges BLM’s Ukiah Field Office has faced in their efforts to retain Monument management staff. Over the last five years, four different individuals have held the position of Monument manager. High turnover rates and subsequent vacancies affect BLM’s ability to protect the region’s ecological and cultural significance.

What drives these turnovers? Employee retention rates can be attributed to discrepancies between the cost of living in Mendocino County and federal employees’ salaries. BLM employees’ pay, as is the case for all federal white-collar employees, is set under the General Schedule (GS). Rates are adjusted in part through locality pay, or a percentage increase to federal employees’ "scheduled annual rate of pay," based on the region in which their “official worksite” is located. The locality pay program was established via the Federal Employees Pay Comparability Act of 1990 (FEPCA), to reduce regionally-specific wage discrepancies between federal and non-federal employees. The program holds potential to improve federal agencies’ employee retention rates, but it has yet to achieve that outcome in Mendocino County.

Instead, Mendocino County receives the lowest locality pay adjustment of any region in the country (16.82%). The County is categorized as reflecting the “Rest of US,” in that it is not eligible for a regionally-specific rate. As such, Mendocino County’s locality pay is analogous to that in South Dakota. Yet, the median listing price for homes in Mendocino County was76% higher thanthat for South Dakota in 2023. By contrast, the locality pay for neighboring Sonoma County is the highest in the nation (45.41%). Ukiah is less than 25 miles from Sonoma.

What can be done? There are four steps we can take to address discrepancies between cost of living in Ukiah and BLM employees’ salaries.

1)    Ask the Federal Salary Council to change Mendocino’s locality pay rate.

Rationale: The Federal Salary Council makes recommendations to the President’s Pay Agent on locality pay, and the Pay Agent, considers those recommendations, defines pay areas, and submits an annual report to the President on locality pay, including rates that would go into effect under the Federal Employees Pay Comparability Act of 1990 (FEPCA) absent another provision of law.

Challenge: To change Mendocino’s locality pay rate, the Federal Salary Council will need to either make an exception to or change their approach for adjusting locality pay rates. In the history of the program, regions have received locality pay adjustments if they are: (1) included in an existing locality pay area as an “area of application” or (2) established as a separate locality pay area. Mendocino County does not meet either criteria.

2)    Ask the Federal Salary Council to reevaluate how locality pay rates are set at a national scale, using Mendocino County as a case study of the program’s limitation

Rationale: The Federal Salary Council has indicated that it is disinclined to make case by case exceptions, and thus, a change to Mendocino’s locality pay rate will likely require changes to the Council’s criteria.

Challenges: This approach is politically challenging. There are regions that benefit from locality pay. Re-evaluation will take resources and significant time will pass before changes are reflected in the salaries for Berryessa Snow Mountain National Monument management staff.

3)    Ask BLM to request the Office of Personnel Management (OPM) approve a Special Rate be applied to the salaries of BLM’s Ukiah Field Office employees’ salaries

Rationale: OPM may establish “Special Rates” to address staffing problems caused by various factors, including “circumstances OPM considers appropriate.”

Challenge: We see this as the most likely solution to improving the retention rates of BLM employees who manage Berryessa Snow Mountain National Monument. However, as with changes to a region’s locality pay rate, funding for a Special Rates will need to come from somewhere (see below).

4)    Ask Congress to increase funding for BLM

Rationale: BLM needs resources to support their staff across the nation. There are an estimated 2,000 vacant positions at BLM, roughly 20% of that agency’s total workforce.

Challenge: Congress’ ability to fund BLM requires bi-partisan support.

What can YOU do? Congress is currently in the process of determining BLM’s budget. As this process unfolds over the next several weeks, we urge YOU to ask Congress to ensure BLM has adequate resources to manage and protect precious public lands and waters. **Click here** to submit a request.


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National Historical Park This designation generally applies to historic parks that extend beyond single properties or buildings. National Memorial A national memorial is commemorative of a historic person or episode; it need not occupy a site historically connected with its subject. National Battlefield This general title includes national battlefield, national battlefield park, national battlefield site, and national military park. In 1958, an NPS committee recommended national battlefield as the single title for all such park lands. National Cemetery There are presently 14 national cemeteries in the National Park System, all of which are administered in conjunction with an associated unit and are not accounted for separately. National Recreation Area Twelve NRAs in the system are centered on large reservoirs and emphasize water-based recreation. Five other NRAs are located near major population centers. Such urban parks combine scarce open spaces with the preservation of significant historic resources and important natural areas in location that can provide outdoor recreation for large numbers of people. National Seashore Ten national seashores have been established on the Atlantic, Gulf and Pacific coasts; some are developed and some relatively primitive. Hunting is allowed at many of these sites. National Lakeshore National lakeshores, all on the Great Lakes, closely parallel the seashores in character and use. National River There are several variations to this category: national river and recreation area, national scenic river, wild river, etc. The first was authorized in 1964 and others were established following passage of the Wild and Scenic Rivers Act of 1968. National Parkway The title parkway refers to a roadway and the parkland paralleling the roadway. All were intended for scenic motoring along a protected corridor and often connect cultural sites. National Trail National scenic trails and national historic trails are the titles given to these linear parklands (over 3,600 miles) authorized under the National Trails System Act of 1968. Affiliated Areas In an Act of August 18, 1970, the National Park System was defined in law as, "any area of land and water now or hereafter administered by the Secretary of the Interior through the National Park Service for park, monument, historic, parkway, recreational or other purposes." The Affiliated Areas comprise a variety of locations in the United States and Canada that preserve significant properties outside the National Park System. Some of these have been recognized by Acts of Congress, others have been designated national historic sites by the Secretary of the Interior under authority of the Historic Sites Act of 1935. All draw on technical or financial aid from the National Park Service. Other Designations Some units of the National Park System bear unique titles or combinations of titles, like the White House and Prince William Forest Park . Types of federal public lands National Parks : Managed by the National Park Service (NPS), these lands are preserved for their natural and cultural resources for future generations to enjoy. National Forests and Grasslands : Managed by the U.S. Forest Service (USFS), these areas are used for multiple purposes, including timber, recreation, and wildlife management. National Wildlife Refuges : Managed by the U.S. Fish and Wildlife Service (USFWS), these lands are primarily for the conservation of fish, wildlife, and plants, but many also allow compatible wildlife-dependent recreation like hunting and fishing. National Conservation Lands : These are public lands designated for their conservation value and are managed by the Bureau of Land Management (BLM). The BLM manages more public land acreage than any other agency. 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