It is the largest landholder in America, overseeing nearly an eighth of the country: 258 million acres located almost exclusively west of the Mississippi River, with even twice as much below the surface. Its domain embraces wildlife and wilderness, timber, range, and minerals, and for over 60 years, the Bureau of Land Management has been an agency in search of a mission.

This is the first comprehensive, analytical history of the BLM and its struggle to find direction. James Skillen traces the bureau's course over three periods-its formation in 1946 and early focus on livestock and mines,...

For the better part of the last century, "preservation" and "multi-use conservation" were the watchwords for managing federal lands and resources. But in the 1990s, amidst notable failures and overwhelming needs, policymakers, land managers, and environmental scholars were calling for a new paradigm: ecosystem management. Such an approach would integrate federal land and resource management across jurisdictional boundaries; it would protect biodiversity and economic development; and it would make federal management more collaborative and less hierarchical. That, at any rate, was the idea....