Well, that is a broad question, as public land can be federally owned, state owned, etc. Federal land is owned by the goverment and the people collectively. We entrust our elected officials (who in turn give power to agencies, etc. to make land use decisions...). The govt decides development, use, and environmental/presevation principles over such land. If we dont like what is going on, we need to vote people into place that will better represent our interests.
That's where I have the problem. I think it is too often that those in control are persuaded (even innocently) to make decisions based on the good of a few select rather than the interest of the greater good.
Funny I'm even saying any of this. I've long been one of the most right-wing, free enterprise, capitalists I've ever known... maybe I'm getting weak as I get older.