	Introduction

The Land and Water Conservation Fund (LWCF) Act of 1965 was enacted to help preserve, develop, and ensure access to outdoor recreation resources. The law created the Land and Water Conservation Fund in the Treasury as a funding source to implement its outdoor recreation goals. The fund accumulates the majority of its revenues from oil and gas leases on the Outer Continental Shelf (OCS). These mandatory appropriations had been relatively small through FY2017, but are estimated to have increased substantially in FY2018 and to remain relatively high at least over the next decade. Of current debate is whether to reauthorize provisions of the LWCF Act beyond September 30, 2018, and alter the operation of the fund. Alterations under discussion include whether to permanently reauthorize the LWCF Act, make all or a portion of the appropriations under that law mandatory (rather than discretionary), direct monies to be used for particular purposes provided for in the LWCF Act, or amend the law to authorize the fund to be used for different purposes. Perennial congressional issues include (1) deciding the total appropriation for federal land acquisition, determining the level of acquisition funds for each of the four agencies, and identifying which lands should be acquired; (2) deciding the level of funding for the state grant program; and (3) determining what, if any, other purposes should be funded through LWCF and at what level. From FY1965 through FY2018, about $40.0 billion has been credited to the LWCF under both the LWCF Act and GOMESA. Purposes of LWCF Appropriations

Appropriations from LWCF have been made for three general purposes: (1) federal acquisition of land and waters and interests therein; (2) the stateside grants for recreational planning; acquiring recreational lands, waters, or related interests; and developing outdoor recreational facilities; and (3) related purposes. Federal Land Acquisition

The LWCF is the principal source of funds for federal acquisition of lands. Most federal lands are acquired (and managed) by four agencies—the Forest Service (FS) in the Department of Agriculture, and the National Park Service (NPS), Fish and Wildlife Service (FWS), and Bureau of Land Management (BLM) in DOI. Under the competitive grant program, begun in FY2014, the NPS awards discretionary grants to urbanized areas meeting certain criteria. In addition, mandatory appropriations are provided for the traditional state grants only. Specifically, under GOMESA, 12.5% of the revenues from certain OCS leasing in the Gulf of Mexico is directed to the stateside program to be used in accordance with the terms of the LWCF Act. The states award their grant money through a competitive, open project selection process based on their recreation plans and their own priorities and selection criteria. Congress has continued to fund a competitive program each year, with funding increasing from $3.0 million in FY2014 to $20.0 million in FY2018. Since FY1998, the LWCF has been used for an array of other purposes related to lands and resources, such as maintenance of agency facilities (including deferred maintenance), the Historic Preservation Fund, the Payments in Lieu of Taxes program, the FS Forest Legacy program, FWS State and Tribal Wildlife grants, and FWS Cooperative Endangered Species grants. Since FY2008, however, funds have been appropriated annually for grants under two programs: Forest Legacy, and the Cooperative Endangered Species Conservation Fund. Funding History

		Overview of Total Appropriations, FY1965-FY2018

Nearly all of the $18.4 billion appropriated throughout the history of the LWCF was discretionary funding. The $18.4 billion appropriated through FY2018 has been unevenly allocated among federal land acquisition, the stateside program, and other purposes, as shown in Figure 2 . Overview of Discretionary Appropriations, FY1965-FY2018

Annual discretionary appropriations from the LWCF have fluctuated widely since the origin of the program more than 50 years ago. Reauthorization of LWCF Act Provisions

Under the LWCF Act, the authority for the LWCF to receive $900 million in revenues annually is scheduled to expire on September 30, 2018. Under the traditional state grant program, a portion of the appropriation is to be distributed equally among the states, with the percentage varying depending on the total amount of appropriations.
The Land and Water Conservation Fund (LWCF) Act of 1965 was enacted to help preserve, develop, and ensure access to outdoor recreation facilities to strengthen the health of U.S. citizens. The law created the Land and Water Conservation Fund in the U.S. Treasury as a funding source to implement its outdoor recreation goals.
The LWCF has been used for three general purposes. First, it has been the principal source of monies for land acquisition for outdoor recreation by four federal agencies—the National Park Service, Bureau of Land Management, Fish and Wildlife Service, and Forest Service. Second, the LWCF also funds a matching grant program to assist states in recreational planning, acquiring recreational lands and waters, and developing outdoor recreational facilities. There are two aspects to this "stateside" program: the traditional state grants and the more recent competitive state grants. Under the traditional state grant program, a portion of the appropriation is divided equally among the states, with the remainder apportioned based on need. Each state awards its grant money based on its own outdoor recreation plan and priorities. The competitive state grant program, begun in FY2014, funds recreation projects in urbanized areas meeting certain criteria. Third, beginning in FY1998, LWCF has been used to fund other federal programs with related purposes, such as the Forest Legacy program of the Forest Service and grants under the Cooperative Endangered Species Conservation Fund of the Fish and Wildlife Service.
Under the LWCF Act, the fund is authorized through September 30, 2018, to accrue $900 million annually from multiple sources. However, nearly all of the revenue is derived from oil and gas leasing in the Outer Continental Shelf (OCS). The LWCF receives additional money under more recent legislation (P.L. 109-432, "GOMESA"). Throughout the history of the LWCF, $40.0 billion in revenues have accrued under both the LWCF Act and GOMESA.
Congress determines the level of funding for the three LWCF purposes through the annual appropriations process. These discretionary appropriations have fluctuated widely since the origin of the program. In addition, any funds deposited under GOMESA are mandatory appropriations for the state grant program. Mandatory appropriations were relatively small from FY2009-FY2017. They increased substantially in FY2018, and are expected to remain relatively high at least over the next decade, due to additional revenues from leasing in the Gulf of Mexico.
Less than half of the $40.0 billion in total revenues that have accrued in the LWCF have been appropriated ($18.4 billion). FY2001 marked the highest funding ever, with appropriations exceeding the authorized level by reaching nearly $1 billion. For FY2018, the most recent fiscal year, the total appropriation was $487.6 million (with $425.0 million in discretionary funds and $62.6 million in mandatory funds).
The $18.4 billion appropriated through the history of the program has been allocated unevenly among federal land acquisition (61%), the state grant program (25%), and other purposes (14%). Similarly, federal land acquisition funds have been allocated unevenly among the four agencies.
A variety of issues pertaining to the LWCF are the subject of legislation, hearings, and other debate. Some of them are being considered as part of deliberations over whether to reauthorize the LWCF beyond September 30, 2018. Issues include the optimal level of funding for LWCF overall and its individual components, whether to reauthorize provisions of the LWCF, and whether to retain discretionary appropriations or provide additional mandatory appropriations. Other issues involve whether LWCF funds should be used for additional purposes, such as maintenance, or set aside for particular priorities, such as securing additional access to federal lands for recreation. The priority of the state grant program vis-à-vis federal acquisition is being debated, as is the extent to which the fund should be used for other programs benefitting states.