United States Department of Agriculture

Forest Service

Fiscal Year 2011

President’s Budget

Budget Justification
FY 2011 Budget Justification USDA Forest Service

Table of Contents i

USDA Forest Service

FY 2011 Budget Justification

Table of Contents

Page

Overview / Highlights............................................................................... 1-1

Budget at a Glance.................................................................................. 2-1

Strategic Plan and Performance Management............................................................... 3-1

Appropriation Language Changes............................................................... 4-1

Forest and Rangeland Research.................................................................. 5-1

State and Private Forestry......................................................................... 6-1

Forest Health Management................................................................. 6-3

Federal Lands....................................................................... 6-6

Cooperative Lands.................................................................. 6-9

Cooperative Fire Protection................................................................ 6-12

State Fire Assistance............................................................... 6-13

Volunteer Fire Assistance......................................................... 6-15

Cooperative Forestry........................................................................ 6-17

Forest Stewardship.................................................................. 6-18

Forest Legacy Program............................................................ 6-21

Community Forest and Open Space Conservation.............................

Urban and Community Forestry .................................................

6-25

6-27

Economic Action Programs....................................................... 6-30

Forest Resources Information and Analysis.................................... 6-31

International Forestry........................................................................ 6-33

National Forest System............................................................................. 7-1

Integrated Resource Restoration...........................................................

Land Management Planning...............................................................

7-4

7-11

Inventory and Monitoring.................................................................. 7-16

Recreation, Heritage, and Wilderness..................................................... 7-19

Grazing Management....................................................................... 7-24

Minerals and Geology Management...................................................... 7-27

Landownership Management............................................................... 7-32

Law Enforcement Operations.............................................................. 7-37

Valles Caldera National Preserve......................................................... 7-40
FY 2011 Budget Justification USDA Forest Service

Table of Contents ii

Capital Improvement and Maintenance........................................................ 8-1

Facilities....................................................................................... 8-2

Roads.......................................................................................... 8-10

Trails.......................................................................................... 8-14

Deferred Maintenance and Infrastructure Improvement................................ 8-17

Legacy Roads and Trails.................................................................... 8-19

Land Acquisition.................................................................................... 9-1

Acquisition of Lands for National Forests Special Acts................................ 9-1

Acquisition of Lands to Complete Land Exchanges.................................... 9-1

Other Appropriations.............................................................................. 10-1

Range Betterment Fund.................................................................... 10-1

Gifts, Donations, and Bequests for Forest and Rangeland Research................. 10-3

Management of National Forest Lands for Subsistence Uses ........................ 10-4

Wildland Fire Management....................................................................... 11-1

Preparedness.................................................................................. 11-3

Suppression................................................................................... 11-7

Fire Operations—Other .................................................................... 11-11

Hazardous Fuels.................................................................... 11-12

Rehabilitation and Restoration.................................................... 11-16

Research and Development.................................................. 11-18

Joint Fire Science Program....................................................... 11-20

Forest Health Management—Federal Lands.................................... 11-22

Forest Health Management—Cooperative Lands.............................. 11-24

State Fire Assistance............................................................... 11-26

Volunteer Fire Assistance......................................................... 11-28

FLAME Wildfire Suppression Reserve Fund.................................................

Presidential Wildland Fire Contingency Reserve............................................. 

 12-1

 13-1

Permanent Appropriations........................................................................ 14-1

Brush Disposal............................................................................... 14-3

Licensee Program (Smokey Bear and Woodsy Owl)................................... 14-5

Restoration of National Forest Lands and Improvements.............................. 14-6

Recreation Enhancement Program......................................................... 14-8

Land and Facility Enhancement Fund.................................................... 14-10

Timber Purchaser Election Road Construction.......................................... 14-16

Timber Salvage Sales........................................................................ 14-18

Stewardship Contracting.................................................................... 14-20

Timber Sales Pipeline Restoration Fund.................................................. 14-23

Forest Botanical Products................................................................... 14-26

Roads and Trails (10 Percent) Fund....................................................... 14-28

Midewin National Tall Grass Prairie Rental Fee Fund................................. 14-30
FY 2011 Budget Justification USDA Forest Service

Table of Contents iii

Midewin National Tall Grass Prairie Restoration Fund................................ 14-31

Operation and Maintenance of Quarters.................................................. 14-32

Land Between the Lakes Management Fund............................................. 14-33

Valles Caldera Fund......................................................................... 14-35

Administration of Rights-of-Way and Other Land Uses............................... 14-37

Payment Funds............................................................................... 14-40

Trust Funds.......................................................................................... 15-1

Cooperative Work Trust Fund—Knutson-Vandenberg (K-V) Fund................. 15-2

Cooperative Work Trust Fund—Other .................................................. 15-5

Land Between the Lakes Trust Fund..................................................... 15-7

Reforestation Trust Fund................................................................... 15-9

Special Exhibits .................................................................................... 16-1

1 ARRA Economic Recovery.......................................................... 16-2

2 Centralized Business Services........................................................ 16-7

3 Chief’s Reserve Fund ................................................................. 16-9

4 Climate Change ........................................................................ 16-12

5 Conservation Education ............................................................... 16-16

6 Cost Pools .............................................................................. 16-18

7 Deferred Maintenance and Asset Management................................... 16-25

8 Facilities Maintenance Assessment ................................................. 16-29

9 Fire Transfers ........................................................................... 16-32

10 Knutson-Vandenberg (K-V) Financial Status ..................................... 16-33

11 National Scenic and Historic Trails .................................................. 16-34

12 Office of General Counsel Reimbursement ........................................ 16-38

13 Office of Tribal Relations ............................................................ 16-39

14 Partnerships ............................................................................. 16-40

15 Reforestation ............................................................................. 16-46

16 Rehabilitation of Burned Areas...................................................... 16-49

17 Research and Development Threat Assessment Centers ......................... 16-51

18 Service First .............................................................................. 16-54

19 Sustainable Operations ................................................................ 16-56

20 Unobligated Balances .................................................................. 16-58

21 USDA Working Capital Fund and Greenbook Charges ......................... 16-60

22 Wood Education and Resource Center ............................................... 16-74

23 Working Capital Fund - Forest Service .............................................

24 Working Capital Fund - Forest Service Fleet Management.......................

16-76

16-77

Authorities.......................................................................................... 17-1
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US Forest Service

Fiscal Year 2011 President’s Budget in Brief

Table of Contents

The FY 2011 Budget Overview.................................................................................... 3

Forest Service Mission, Goals, and Objectives.................................................................. 8

Forest Service Organization..................................................................................... 9

Ten-Year Graph of Forest Service Budget Authority...................................................... 12

Three-Year Budget Summary of Appropriations............................................................ 13

Three-Year Budget Summary of Full-Time Equivalents................................................... 16

Three-Year Receipts by Source and Payments to States................................................... 19

Activity Output Table.......................................................................................... 22

FY 2011 Facilities Major Projects............................................................................ 33

FY 2011 Proposed Land Acquisition Program............................................................... 38

FY 2011 Proposed Forest Legacy Program.................................................................. 39
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Overview

The U.S. Forest Service sustains the health, diversity, and productivity of the Nation’s forests and 

grasslands; directly manages 193 million acres of national forests and grasslands; provides States, tribes, 

and private forest landowners with technical and financial assistance; and conducts innovative research on 

sustaining forest resources for future generations.

The fiscal year (FY) 2011 President’s budget request for the Forest Service totals $5.38 billion in 

discretionary appropriations, a $23 million program increase over the FY 2010 enacted level. This budget 

reflects our Nation’s highest priorities, acts to save and create new jobs, and lays a new foundation of 

economic growth, especially in rural areas.

The FY 2011 budget for the Forest Service supports the Administration’s priorities for maintaining and 

enhancing the resiliency and productivity of America’s forests through five key initiatives: Restoring and 

Sustaining Forest Landscapes; Protecting and Enhancing Water Resources and Watershed Health; 

Making Landscapes More Resilient to Climate Change; Responsibly Budgeting for Wildfire; and 

Creating Jobs and Sustainable Communities.

The budget includes an increase of $38 million for pay and inflation. This will allow the Forest Service to 

pay for the civilian pay raise and other pay cost increases, such as the increase in retirement and other 

employee benefits tied to salary levels. Without this increase, the Forest Service would still need to fund 

the pay increase of its permanent workforce, but would do so by curtailing other programs, such as hiring 

fewer seasonal employees, not filling critical vacancies, or conducting less work through contractors, 

grants, or agreements.

The FY 2011 President’s Budget

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Annual Appropriations

Discretionary Funds

Forest & Rangeland Research $312,012 $3,042 -$10,700 $304,354

State & Private Forestry $308,061 $1,282 $12,250 $321,593

National Forest System $1,551,339 $14,155 $20,225 $1,585,719

Capital Improvement & Maintenance $556,053 $3,531 -$121,191 $438,393

Land Acquisition $64,822 $80 $10,062 $74,964

Other Appropriations $6,232 $24 $0 $6,256

Wildland Fire Management $2,103,737 $16,180 -$47,567 $2,072,350

FLAME Wildfire Suppression Reserve Fund $413,000 -$122,000 $291,000

Presidential Wildland Fire Contingency Reserve $0 $282,000 $282,000

Discretionary Funds Total $5,315,256 $38,294 $23,079 $5,376,629

Mandatory Appropriations $907,441 $0 -$92,798 $814,643

Supplemental & Emergency Funding $0 $0 $0 $0

Supplemental & Emergency Funding - ARRA $0 $0 $0 $0

Supplemental & Emergency Funding - Fire $0 $0 $0 $0

Grand Total, Forest Service $6,222,697 $38,294 -$69,719 $6,191,272
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FY 2011 Forest Service Budget Context

A healthy and prosperous America relies on healthy forests and grasslands and the benefits they provide: 

clean air and water, carbon storage, renewable energy, food and fiber, fertile soils, wildlife habitat, and 

recreation opportunities. The threats facing our lands and natural resources – climate change, increasing 

wildfires, and development pressures – do not stop at ownership boundaries. Healthy forests and 

grasslands are elements of integrated landscapes that need to be restored, conserved, and managed across 

all land, from remote wildlands to urban centers.

Fully developing and implementing a shared vision for America’s Forests will require collaboration and 

input from a diverse coalition of partners and stakeholders. The FY 2011 budget for the Forest Service 

supports the Administration’s priorities for maintaining and enhancing the resiliency and productivity of 

America’s forests through five central objectives:

1. Restoring and Sustaining Forest Landscapes

2. Protecting and Enhancing Water Resources and Watershed Health

3. Making Landscapes More Resilient to Climate Change

4. Responsibly Budgeting for Wildfire

5. Creating Jobs and Sustainable Communities

These objectives are interconnected and complementary, so on-the-ground projects will incorporate and 

achieve strategic actions from multiple objectives, using an all-lands approach.

Restoring and Sustaining Forest Landscapes

When the health and integrity of our lands deteriorate, so do the environmental, economic, and social 

benefits they provide, with enormous impacts on drinking water, carbon emissions, climate, wildlife, 

recreation, community health, and prosperity. To maintain these vital functions, the Forest Service will 

work with partners to restore and sustain forest landscapes and provide incentives to prevent the loss of 

private forests and other working lands to development. This budget request supports the Secretary’s 

vision of implementing an all-lands restoration framework and will focus much of the Agency’s work in 

high-priority watersheds and landscapes. The Forest Service is poised to make strong advances toward 

sustaining Nation’s most critical forests and grasslands.

The Forest Service proposes a restructuring of the Agency budget to enable high priority restoration work 

to occur. A new budget line item, Integrated Resource Restoration, is proposed, which will combine the 

Forest Products, Vegetation and Watershed Management, and Wildlife and Fisheries Management line 

items from FY 2010. The FY 2011 budget proposes directing $694 million to Integrated Resource 

Restoration, allowing the agency to refocus its resources on mitigating threats to ecosystem sustainability 

and resiliency, including climate change, increased wildfires, and disease and insect infestations. This 

change will enhance the agency’s ability to provide strong accountability for the use of stewardship 

contracting to meet restoration objectives, and will reinforce the cultural transition of the agency to using 

forest product removal for restoration purposes.

Using the authorities provided through the Forest Landscape Restoration Title of the Omnibus Public 

Land Management Act of 2009 (16 U.S.C. 7303), the Forest Service proposes directing $40 million to the 

Collaborative Forest Landscape Restoration Fund, the full amount authorized by law. Through close 
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coordination with other landowners, the Forest Service will encourage collaborative solutions at the 

landscape scale. The Collaborative Forest Landscape Restoration Program will leverage local resources 

with national and private resources; increase effectiveness of wildfire management actions, including 

through reestablishing natural fire regimes and reducing the risk of uncharacteristic wildfire; demonstrate 

the use of ecological restoration to achieve watershed health objectives; and encourage utilization of 

forest restoration by-products to offset treatment costs and benefit local rural economies. 

Protect and Enhance Water Resources and Watershed Health

Forests are vital to providing clean and abundant water for America. Our National Forests and Grasslands 

are the source of fresh water for more than 60 million people from coast to coast. More than half of the 

Nation’s forests are privately owned, and more than a quarter of our fresh water flows from and is filtered 

by these lands. The threats of climate change, catastrophic fire, invasive pests, severe storm events, and 

increasing development pressures impact the quantity, availability, and quality of America’s water 

resources and the health of its watersheds. The Forest Service will promote the restoration and 

maintenance of watersheds to ensure abundant clean water, the protection of soils, and the health of 

aquatic and terrestrial ecosystems. 

The Forest Service is proposing to invest $50 million to improve watershed conditions through the new 

Priority Watersheds and Job Stabilization initiative as part of the Integrated Resource Restoration budget 

line item in the National Forest System Appropriation. Under this initiative, priority watersheds will be 

identified through a rapid watershed assessment. Large-scale (greater than 10,000 acres) watershed 

restoration projects within these priority watersheds will be selected through a national prioritized process 

which favors projects that demonstrate coordination with other Federal and State land management 

agencies or are in areas identified in State Forest Assessments; improve watershed function and health; 

create jobs or will contribute to job stability; and create or maintain biomass or renewable energy 

development. Restoration projects will clearly track accomplishments by evaluating change in watershed 

condition and counting the number of jobs created.

Making Landscapes More Resilient to Climate Change

Broad scientific consensus confirms that global climate change is real and that the impacts are 

dramatically altering forests and grasslands and the goods and services they provide. Many of the most 

urgent forest and grassland management problems of the past 20 years— wildfires, changing water 

regimes, and expanding forest insect infestations—have been driven, in part, by changing climate; future 

impacts are projected to be even more severe. America’s forests and rangelands are critical components 

of the Nation’s response to climate change. Managing them to better adapt to both current and future 

climates will help ensure that they continue to produce needed goods and services, including 

sequestration of heat-trapping gases that cause global warming.

In FY 2010, regional offices, research stations, the Northeastern Area, and the International Institute of 

Tropical Forestry are working with program staffs in the Chief’s Office to develop plans to integrate our 

research, management, and landowner assistance programs to address climate change. This effort 

involves collaboration with other Federal, State, Tribal, and private landowners and communities. These 

plans will build on the long Forest Service history of managing ecosystems to maintain and enhance their 

resilience to stress. A number of forests have already established climate change adaptation plans. In FY 

2011, the Forest Service will continue these efforts, and the application of science-based tools built on 

more than 20 years of climate change research.
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The agency will submit a report to Congress describing in detail all obligations and expenditures, 

domestic and international, for climate change programs and activities in fiscal year 2009 and fiscal year 

2010. The report will be submitted to the Appropriations Committees of both the House and the Senate, 

120 days after the President’s Budget Justification is submitted to Congress as directed in the FY 2010 

appropriations bill.

Responsibly Budgeting for Wildfire

This budget request continues to support the Presidential Initiative from FY 2010 to responsibly budget 

for wildfire by proposing a three-tiered system for wildland fire attack. The request includes a request of 

$886 million to fully fund suppression costs. Costs are split into $595 million to fund the Suppression 

account, and $291 million to fund the new FLAME Act Fund. FLAME Act Funds will be available to the 

Secretary of Agriculture to be transferred into the Suppression account when the Suppression account is 

nearly exhausted and/or certain objective criteria are met as fires escape initial response.

In recognition that $886 million may not be sufficient if the fire season is particularly long or severe, a 

$282 million discretionary Presidential Wildland Fire Contingency Reserve for fighting catastrophic 

wildfires is also proposed. Funds in the Contingency Reserve would be in a separate Treasury account, 

available to the Forest Service subject to depletion of the Suppression account and FLAME Act Fund, and 

after the issuance of a Presidential finding that the funds are necessary. This three-tiered system will 

provide adequate funding for fire suppression and allow for other critical Forest Service activities to 

continue while reducing the likelihood of disruptive transfers from non-fire accounts. 

This budget request also properly realigns Preparedness and Suppression funding by shifting funds from 

the Suppression account into Preparedness. This shift is based on a realignment of the costs that have 

been shifted into the Suppression account during the past 6 years; FY 2005 – FY 2010. These program 

readiness costs have been shifted back into the Preparedness account resulting in an increased 

Preparedness request and a decreased Suppression request with no net change in resource availability 

from FY 2010. This ensures that preparedness costs are fully identified and separate from the costs of fire 

suppression.

In FY 2011, the Forest Service proposes $349 million to reduce hazardous fuels on approximately 1.6 

million acres of national forest and adjacent lands, focusing on treating acres in the wildland urban 

interface (WUI), with Community Wildfire Protection Plans (CWPPs) identifying areas to be treated. The 

strategy of focusing on high priority fuels within the WUI will help deter large, destructive, and costly 

wildfires, thereby protecting communities invested in implementing local solutions to protection against 

fire, reducing safety risks to firefighters and the public and reducing wildfire suppression costs. In FY 

2011, all Hazardous Fuels funds will be allocated to the regions using a newly modified Hazardous Fuels 

Prioritization Allocation System (HFPAS), which will rank and prioritize hazardous fuels projects 

nationally. Prioritizations will be based on factors such as fire potential, values at risk, efficiency of 

treatments, and effectiveness of treatments with an emphasis and focus on WUI. 

The Forest Service will continue to deploy analytic support tools to improve fire incident and program 

decision-making, and agency accountability. A number of Wildland Fire Decision Support Systems (such 

as FSPro, which models fire behavior, and RAVAR, which models values at risk from fire) provide realtime support to fire managers implementing Risk-Informed Management. These efforts are coupled with 

program reforms such as strategic and operational protocols, improved oversight, and use of a risk 

management framework that ensure fire management resources are appropriately focused. The Forest 

Service, in collaboration with the Department of the Interior, is updating the fire planning and budget 
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analysis process through the Fire Program Analysis system. In summary, the budget promotes safe, costeffective and accountable outcomes from investments made in managing fire on landscapes.

Creating Jobs and Sustainable Communities

The restoration and conservation of forests and working lands can provide jobs and support sustainable 

communities—generating economic value by attracting tourism and recreation visitors, sustaining green 

jobs, and producing timber and other forest products, food, and energy. Our forests are also of immense 

social importance, enhancing rural quality of life, sustaining scenic and culturally important landscapes, 

oftentimes defining the essence of a community.

The 2011 President’s Budget builds off of the investments made through the American Recovery and 

Reinvestment Act of 2009 (ARRA). The ARRA provided $1.15 billion to the Forest Service over two 

years in order to create jobs and promote economic recovery, especially to those areas which the 

recession has impacted most. As of the end of calendar year 2009, the Forest Service has announced more 

than 500 projects in 47 states, and these are estimated to create over 20,000 new private sector jobs across 

the Country. Many of the projects address high-priority forestry needs, such as fuels and forest health 

treatments and biomass utilization. Our involvement has helped to stimulate collaborative efforts related 

to restoration, climate change, fire and fuels, and landscape-scale conservation.

Conclusion

The Forest Service presents its FY 2011 budget positioned to fulfill its mission of restoring and sustaining 

the health, diversity, and productivity of the Nation’s forests and grasslands to meet the needs of present 

and future generations. The budget supports responsible budgeting for wildfires; reducing the 

maintenance backlog of facilities, roads, and trails on National Forest System lands; recovering the 

economy, conserving new lands, and responding to climate change. This suite of monetary and 

management foci enable the Forest Service to address challenges while continuing to conduct research, 

provide assistance to landowners and resource managers, and steward national forests and grasslands.
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Forest Service Mission, Goals, and Objectives

Mission

Sustain the health, diversity, and productivity of the Nation’s forests and grasslands to meet the needs of 

present and future generations.

This mission stems from the relationship between the American people and their natural resource 

heritage. This relationship is characterized by the principles of sustaining our natural resources for future 

generations, fostering personal and community well-being, and providing economic wealth for the 

Nation.

Goals and Objectives

The Forest Service Strategic Plan for FY 2007 – 2012 outlines the agency’s over-arching goals and 

objectives. The seven strategic goals follow:

Goal 1. Restore, Sustain, and Enhance the Nation’s Forests and Grasslands

Goal 2. Provide and Sustain Benefits to the American People

Goal 3. Conserve Open Space

Goal 4. Sustain and Enhance Outdoor Recreation Opportunities

Goal 5. Maintain Basic Management Capabilities of the Forest Service

Goal 6. Engage Urban America with Forest Service Programs

 Goal 7. Provide Science-Based Applications and Tools for Sustainable Natural Resources 

 Management

Strategic objectives in each goal (outlined in the Strategic Plan and Performance Management Chapter of 

the Budget Justification) include indicators of agency performance, with baselines and FY 2012 targets. 

Means and strategies by which agency programs accomplish strategic goals and objectives are provided. 

Foundational business management standards are also documented.
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Forest Service Organization

The Chief of the Forest Service is a career Federal employee who oversees the entire agency. The Chief 

reports to the Under Secretary for Natural Resources and Environment in the U.S. Department of 

Agriculture (USDA), an appointee of the President confirmed by the Senate. The Chief’s staff provides 

broad policy and direction for the agency, works with the Administration to develop a budget to submit to 

Congress, provides information to Congress on accomplishments, and monitors activities of the agency. 

There are four deputy chiefs for the following areas: National Forest System; State and Private Forestry; 

Research and Development; and Business Operations.

The Forest Service organization includes ranger districts, national forests, and regions; research stations 

and research work units; and the Northeastern Area Office for State and Private Forestry. Each level has 

responsibility for a variety of functions.

Ranger District: The Forest Service has more than 600 ranger districts. Each district has a staff of 10 to 

100 people under the direction of a district ranger, a line officer who reports to a forest supervisor. The 

districts vary in size from 50,000 acres to more than 1 million acres. Most on-the-ground activities occur 

on ranger districts, including trail construction and maintenance, operation of campgrounds, and 

management of vegetation and wildlife habitat.

National Forest: The Forest Service oversees 155 national forests and 20 grasslands. Each administrative 

unit is typically comprised of several ranger districts, under the overall direction of a forest supervisor. 

Within the supervisor's office, the staff coordinates activities among districts, allocates the budget, and 

provides technical support to each district. Forest supervisors are line officers and report to regional 

foresters.

Region: The Forest Service has nine regions, each encompassing a broad geographic area, and headed by 

a regional forester who reports directly to the Chief. The regional forester has broad responsibility for 

coordinating activities among the various forests within the region, for providing overall leadership for 

regional natural resource and social programs, and for coordinating regional land use planning.

Northeastern Area: The Northeastern Area Office for State and Private Forestry includes three field 

offices and Grey Towers Historic Site. The area director, like regional foresters, reports directly to the 

Chief. The area director leads and helps support sustainable forest management and use across the 

landscape to provide benefits to the people of the 20 Northeastern and Midwestern States and the District 

of Columbia.

Research Stations and Research Work Units: The Forest Service’s Research and Development 

organization includes five research stations, the Forest Products Laboratory, and the International Institute 

of Tropical Forestry. Station directors, like regional foresters, report to the Chief. Research stations 

include Northern, Pacific Northwest, Pacific Southwest, Rocky Mountain, and Southern. There are 

approximately 500 scientists located at 67 sites throughout the United States.

Centralized Business Services: The Agency centralized three major functional areas: Budget and 

Finance (B&F), Office of the Chief Information Officer (OCIO), and Human Capital Management 

(HCM). Most employees in B&F and HCM are located at the Albuquerque Service Center (ASC). 

Some OCIO employees are also located in Albuquerque but most are housed in locations across the 

country.
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USDA Forest Service – Maps of Organizational Units

The map below provides the locations of the national forests and grasslands. 
U.S. Department of Agriculture-Forest Service

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#0

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Kane

Koen

Coram

Delta

Dukes

Paoli

Udell

Coulee

Desert

Entiat

Fernow Fraser

Santee

Sinkin

Argonne

Calhoun

Chipola

Coweeta

Manitou

Marcell

Olustee

Redwood

Sagehen

Starkey Bartlett

Crossett

Escambia

Harrison

Hitchiti

Pike Bay

Sylamore

Big Falls

Challenge

Kaskaskia

Kawishiwi McCormick

Palustris

Penobscot

San Dimas

Teakettle

Alum Creek

Bent Creek

Massabesic

Wind River

Black Hills

Boise Basin

Fort Valley

Great Basin

Long Valley

San Joaquin

Cascade Head

Caspar Creek

Priest River

Scull Shoals Sierra Ancha

Silas Little

South Umpqua

Tallahatchie

Cutfoot Sioux

Glacier Lakes

H. J. Andrews

Pringle Falls Hubbard Brook

North Mountain

Swain Mountain

Vinton Furnace

Blacks Mountain

Deception Creek

Lower Peninsula

Tenderfoot Creek

Stephen F. Austin

Stanislaus-Tuolumne

#0

#0

#0 Alaska

Maybeso

Young Bay

Bonanza Creek

#0

Hawaii

Hawaii (proposed)

Lands

#0 Experimental Area

National Forest

Research Stations

Northern

Pacific Northwest

Pacific Southwest

Rocky Mountain

Southern

#0 Puerto Rico #0

U.S. Virgin Islands

Luquillo

Estate Thomas

G. Arthaud 8/7/06

USDA Forest Service Experimental Areas

Blue Valley

Onion Creek
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Ten-Year Graph of Forest Service Budget Authority

2002 2003 2004 2005 2006 2007 2008 2009 2010 2011

Discretionary 3,784 3,956 4,192 4,238 4,201 4,327 4,487 4,758 5,315 5,377

Mandatory 665 658 876 892 795 721 782 897 907 821

Supplemental 658 919 724 582 177 370 1,356 200 0 0

ARRA funding 1,150

$0

$500

$1,000

$1,500

$2,000

$2,500

$3,000

$3,500

$4,000

$4,500

$5,000

$5,500

Nominal Dollars (millions)
Overview of the FY 2011 President’s Budget Page 13 of 40

Three-Year Summary of Appropriations

(dollars in thousands)

FY 2009 

Enacted 

FY 2010 

Enacted 

FY 2011 

President's 

Budget

FY 2011 vs 

FY 2010

Percent 

of 

Change

Discretionary Funds

Forest & Rangeland Research

Annual Appropriations

Forest & Rangeland Research $296,380 $312,012 $304,354 -$7,658 -2%

Annual Appropriations Total $296,380 $312,012 $304,354 -$7,658 -2%

Forest & Rangeland Research Total $296,380 $312,012 $304,354 -$7,658 -2%

State & Private Forestry

Annual Appropriations

Forest Health Management

Forest Health Management - Federal Lands $54,110 $57,282 $56,165 -$1,117 -2%

Forest Health Management - Cooperative Lands $46,292 $48,573 $45,913 -$2,660 -5%

Forest Health Management Total $100,402 $105,855 $102,078 -$3,777 -4%

Cooperative Fire Protection

State Fire Assistance $35,000 $39,147 $35,257 -$3,890 -10%

Volunteer Fire Assistance $6,000 $7,000 $7,000 $0 0%

Cooperative Fire Protection Total $41,000 $46,147 $42,257 -$3,890 -8%

Cooperative Forestry

Forest Stewardship Program $27,000 $29,369 $29,516 $147 1%

Forest Legacy Program $49,445 $75,960 $100,110 $24,150 32%

Community Forest & Open Space Conservation $0 $500 $1,000 $500 100%

Urban & Community Forestry $29,541 $30,377 $32,428 $2,051 7%

Economic Action Programs $4,973 $5,000 $0 -$5,000 -100%

Forest Resources Information & Analysis $5,000 $5,035 $5,068 $33 1%

Cooperative Forestry Total $115,959 $146,241 $168,122 $21,881 15%

International Forestry $8,500 $9,818 $9,136 -$682 -7%

Annual Appropriations Total $265,861 $308,061 $321,593 $13,532 4%

Supplemental & Emergency Funding $0 $0 $0 $0

State & Private Forestry Total $265,861 $308,061 $321,593 $13,532 4%

National Forest System

Annual Appropriations

Integrated Resource Restoration $0 $0 $693,772 $693,772 0%

Land Management Planning $48,833 $45,917 $45,958 $41 0%

Inventory & Monitoring $167,580 $170,502 $169,992 -$510 0%

Recreation, Heritage & Wilderness $277,635 $285,117 $293,152 $8,035 3%

Wildlife & Fisheries Habitat Management $139,385 $143,014 $0 -$143,014 -100%

Grazing Management $50,000 $50,714 $50,508 -$206 0%

Forest Products $332,666 $336,722 $0 -$336,722 -100%

Vegetation & Watershed Management $180,437 $187,960 $0 -$187,960 -100%

Minerals & Geology Management $85,470 $87,240 $87,366 $126 0%

Landownership Management $93,299 $95,606 $95,323 -$283 0%

Law Enforcement Operations $135,500 $145,047 $146,148 $1,101 1%

Valles Caldera National Preserve $4,000 $3,500 $3,500 $0 0%

Rescission of Prior Year Unobligated Balances -$5,000 $0 $0 $0 0%

Annual Appropriations Total $1,509,805 $1,551,339 $1,585,719 $34,380 2%

Supplemental & Emergency Funding $0 $0 $0 $0

National Forest System Total $1,509,805 $1,551,339 $1,585,719 $34,380 2%

Table Note: The National Forest System Total does not match the printed President’s Budget, the amount 

displayed will be in the forthcoming Errata to the President’s Budget.
Overview of the FY 2011 President’s Budget Page 14 of 40

Three-Year Summary of Appropriations

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY 2011 vs 

FY 2010

Percent 

of 

Change

Discretionary Funds

Capital Improvement & Maintenance

Annual Appropriations

Facilities $126,453 $135,010 $131,438 -$3,572 -3%

Roads $228,825 $236,521 $164,365 -$72,156 -31%

Trails $81,015 $85,381 $83,061 -$2,320 -3%

Deferred Maintenance & Infrastructure Improvement $9,100 $9,141 $9,158 $17 0%

Legacy Roads & Trails $50,000 $90,000 $50,371 -$39,629 -44%

Annual Appropriations Total $495,393 $556,053 $438,393 -$117,660 -21%

Supplemental & Emergency Funding $0 $0 $0 $0

Supplemental & Emergency Funding - ARRA $650,000 $0 $0 $0

Capital Improvement & Maintenance Total $1,145,393 $556,053 $438,393 -$117,660 -21%

Land Acquisition

Annual Appropriations

Land Acquisition $49,775 $63,522 $73,664 $10,142 16%

Acquisition of Lands for National Forests Special Acts $1,050 $1,050 $1,050 $0 0%

Acquisition of Lands to Complete Land Exchanges $41 $250 $250 $0 0%

Annual Appropriations Total $50,866 $64,822 $74,964 $10,142 16%

Land Acquisition Total $50,866 $64,822 $74,964 $10,142 16%

Other Appropriations

Annual Appropriations

Range Betterment Fund $2,581 $3,600 $3,600 $0 0%

Gifts, Donations, & Bequests for Research $50 $50 $50 $0 0%

Mgt. of NF Lands for Subsistence Uses $5,000 $2,582 $2,606 $24 1%

Annual Appropriations Total $7,631 $6,232 $6,256 $24 0%

Other Appropriations Total $7,631 $6,232 $6,256 $24 0%

Wildland Fire Management

Annual Appropriations

Preparedness $675,000 $675,000 $1,008,226 $333,226 49%

Fire Operations - Suppression $993,947 $997,505 $595,000 -$402,505 -40%

Fire Operations - Other $462,683 $496,232 $469,124 -$27,108 -5%

Hazardous Fuels $328,086 $340,285 $349,447 $9,162 3%

NFP Rehabilitation & Restoration $11,500 $11,600 $9,035 -$2,565 -22%

NFP Research & Development $23,917 $23,917 $24,060 $143 1%

Joint Fire Science Program $8,000 $8,000 $8,009 $9 0%

NFP Forest Health Management - Federal Lands $17,252 $20,752 $14,442 -$6,310 -30%

NFP Forest Health Management - Cooperative Lands $9,928 $11,428 $7,027 -$4,401 -39%

NFP State Fire Assistance $55,000 $71,250 $50,104 -$21,146 -30%

NFP Volunteer Fire Assistance $9,000 $9,000 $7,000 -$2,000 -22%

Collaborative Forest Landscape Restoration Fund $0 $10,000 $0 -$10,000 -100%

Rescission of Prior Year Unobligated Balances $0 -$75,000 $0 $75,000 0%

Annual Appropriations Total $2,131,630 $2,103,737 $2,072,350 -$31,387 -1%

Supplemental & Emergency Funding - Fire

Fire Operations - Suppression $200,000 $0 $0 $0

Fire Operations - Other $0 $0 $0 $0

Supplemental & Emergency Funding - Fire Total $200,000 $0 $0 $0

Supplemental & Emergency Funding - ARRA $500,000 $0 $0 $0

Wildland Fire Management Total $2,831,630 $2,103,737 $2,072,350 -$31,387 -1%
Overview of the FY 2011 President’s Budget Page 15 of 40

Three-Year Summary of Appropriations

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY 2011 vs 

FY 2010

Percent 

of 

Change

Discretionary Funds

FLAME Wildfire Suppression Reserve Fund

Annual Appropriations

FLAME Wildfire Suppression Reserve Fund $0 $413,000 $291,000 -$122,000 -30%

Annual Appropriations Total $0 $413,000 $291,000 -$122,000 -30%

FLAME Wildfire Suppression Reserve Fund Total $0 $413,000 $291,000 -$122,000 -30%

Presidential Wildland Fire Contingency Reserve

Annual Appropriations

Presidential Wildland Fire Contingency Reserve $0 $0 $282,000 $282,000 0%

Annual Appropriations Total $0 $0 $282,000 $282,000 0%

Presidential Wildland Fire Contingency Reserve Total $0 $0 $282,000 $282,000 0%

Discretionary Funds Total $6,107,566 $5,315,256 $5,376,629 $61,373 1%

Permanent Funds

Brush Disposal $11,637 $14,700 $14,700 $0 0%

Licensee Program $5 $33 $33 $0 0%

Restoration of Forest Lands & Improvements $10,085 $15,000 $15,000 $0 0%

Federal Lands Recreation Enhancement Fund $102,194 $99,900 $67,700 -$32,200 -32%

Federal Land & Facility Enhancement Fund $13,417 $40,850 $22,400 -$18,450 -45%

Timber Purchaser Election Road Construction $2,854 $2,000 $2,000 $0 0%

Timber Salvage Sales $33,233 $34,200 $34,000 -$200 -1%

Stewardship Contracting $3,286 $6,590 $6,000 -$590 -9%

Timber Sales Pipeline Restoration Fund $4,239 $8,000 $7,000 -$1,000 -13%

Forest Botanical Products $1,385 $1,830 $2,330 $500 27%

Roads & Trails (10 percent) Fund $710 $1,500 $10,000 $8,500 567%

Midewin National Tallgrass Prairie Rental Fee Fund $571 $800 $800 $0 0%

Midewin National Tallgrass Prairie Restoration Fund $0 $0 $0 $0 0%

Operation & Maintenance of Quarters $7,368 $8,300 $8,000 -$300 -4%

Land Between the Lakes Management Fund $3,892 $4,100 $4,300 $200 5%

Valles Caldera Fund $593 $1,000 $1,000 $0 0%

Administration of Rights-of-Way & Other Land Uses $3,369 $7,418 $8,300 $882 12%

Payment to States Funds $545,446 $496,270 $452,180 -$44,090 -9%

Permanent Funds Total $744,284 $742,491 $655,743 -$86,748 -12%

Trust Funds

Cooperative Work, Knutson-Vandenberg $67,795 $68,200 $68,800 $600 1%

Cooperative Work, Knutson-Vandenberg Regional Work $14,052 $16,700 $10,000 -$6,700 -40%

Cooperative Work, Forest Service $40,274 $50,000 $50,000 $0 0%

Land Between the Lakes Trust Fund $20 $50 $100 $50 100%

Reforestation Trust Fund $30,441 $30,000 $30,000 $0 0%

Trust Funds Total $152,582 $164,950 $158,900 -$6,050 -4%

 Grand Total, Forest Service $7,004,432 $6,222,697 $6,191,272 -$31,425 -1%

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Percent 

of 

Change

Annual Appropriations $4,757,566 $5,315,256 $5,376,629 $61,373 1%

Mandatory Appropriations $896,866 $907,441 $814,643 -$92,798 -10%

Supplemental & Emergency Funding $0 $0 $0 $0 0%

Supplemental & Emergency Funding - Fire $200,000 $0 $0 $0 0%

Supplemental & Emergency Funding - ARRA $1,150,000 $0 $0 $0 0%

 Grand Total, Forest Service $7,004,432 $6,222,697 $6,191,272 -$31,425 -1%
Overview of the FY 2011 President’s Budget Page 16 of 40

Three-Year Summary of Full-Time Equivalents

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY 2011 vs 

FY 2010

Discretionary Funds

Forest & Rangeland Research

Annual Appropriations

Forest & Rangeland Research 2,049 2,055 2,055 0

Annual Appropriations Total 2,049 2,055 2,055 0

Forest & Rangeland Research Total 2,049 2,055 2,055 0

State & Private Forestry

Annual Appropriations

Forest Health Management

Forest Health Management - Federal Lands 312 304 304 0

Forest Health Management - Cooperative Lands 61 40 40 0

Forest Health Management Total 373 344 344 0

Cooperative Fire Protection

State Fire Assistance 48 49 49 0

Volunteer Fire Assistance 1 0 0 0

Cooperative Fire Protection Total 49 49 49 0

Cooperative Forestry

Forest Stewardship Program 62 66 66 0

Forest Legacy Program 25 22 22 0

Community Forest & Open Space Conservation 0 0 0 0

Urban & Community Forestry 45 45 45 0

Economic Action Programs 1 0 0 0

Forest Resources Information & Analysis 15 15 15 0

Cooperative Forestry Total 148 148 148 0

International Forestry 28 30 30 0

Annual Appropriations Total 598 571 571 0

Supplemental & Emergency Funding 3 0 0 0

State & Private Forestry Total 601 571 571 0

National Forest System

Annual Appropriations

Integrated Resource Restoration 0 0 5,010 5,010

Land Management Planning 343 330 324 -6

Inventory & Monitoring 1,069 1,050 955 -95

Recreation, Heritage & Wilderness 2,279 2,285 2,345 60

Wildlife & Fisheries Habitat Management 1,062 1,045 0 -1,045

Grazing Management 436 425 412 -13

Forest Products 2,831 2,765 0 -2,765

Vegetation & Watershed Management 1,317 1,357 0 -1,357

Minerals & Geology Management 552 528 527 -1

Landownership Management 707 710 700 -10

Law Enforcement Operations 848 806 811 5

Valles Caldera National Preserve 1 1 1 0

Rescission of Prior Year Unobligated Balances 0 0 0 0

Annual Appropriations Total 11,445 11,302 11,085 -217

Supplemental & Emergency Funding 34 0 0 0

National Forest System Total 11,479 11,302 11,085 -217
Overview of the FY 2011 President’s Budget Page 17 of 40

Three-Year Summary of Full-Time Equivalents

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY 2011 vs 

FY 2010

Discretionary Funds

Capital Improvement & Maintenance

Annual Appropriations

Facilities 461 485 470 -15

Roads 1,409 1,447 987 -460

Trails 678 700 685 -15

Deferred Maintenance & Infrastructure Improvement 19 16 11 -5

Legacy Roads & Trails 97 165 95 -70

Annual Appropriations Total 2,664 2,813 2,248 -565

Supplemental & Emergency Funding 31 0 0 0

Supplemental & Emergency Funding - ARRA 25 113 0 -113

Capital Improvement & Maintenance Total 2,720 2,926 2,248 -678

Land Acquisition

Annual Appropriations

Land Acquisition 55 45 45 0

Acquisition of Lands for National Forests Special Acts 1 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0

Annual Appropriations Total 56 45 45 0

Land Acquisition Total 56 45 45 0

Other Appropriations

Annual Appropriations

Range Betterment Fund 11 12 12 0

Gifts, Donations, & Bequests for Research 0 0 0 0

Mgt. of NF Lands for Subsistence Uses 18 10 10 0

Annual Appropriations Total 29 22 22 0

Other Appropriations Total 29 22 22 0

Wildland Fire Management

Annual Appropriations

Preparedness 6,246 6,246 6,900 654

Fire Operations - Suppression 2,987 5,657 5,003 -654

Fire Operations - Other 3,038 2,676 2,665 -11

Hazardous Fuels 2,737 2,376 2,376 0

NFP Rehabilitation & Restoration 44 43 32 -11

NFP Research & Development 129 129 129 0

Joint Fire Science Program 8 8 8 0

NFP Forest Health Management - Federal Lands 94 94 94 0

NFP Forest Health Management - Cooperative Lands 24 24 24 0

NFP State Fire Assistance 2 2 2 0

NFP Volunteer Fire Assistance 0 0 0 0

Collaborative Forest Landscape Restoration Fund 0 0 0 0

Rescission of Prior Year Unobligated Balances 0 0 0 0

Annual Appropriations Total 12,271 14,579 14,568 -11

Supplemental & Emergency Funding - Fire

Fire Operations - Suppression 0 0 0 0

Fire Operations - Other 254 0 0 0

Supplemental & Emergency Funding - Fire Total 254 0 0 0

Supplemental & Emergency Funding - ARRA 30 36 0 -36

Wildland Fire Management Total 12,555 14,615 14,568 -47
Overview of the FY 2011 President’s Budget Page 18 of 40

Three-Year Summary of Full-Time Equivalents

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY 2011 vs 

FY 2010

Discretionary Funds

FLAME Wildfire Suppression Reserve Fund

Annual Appropriations

FLAME Wildfire Suppression Reserve Fund 0 0 0 0

Annual Appropriations Total 0 0 0 0

FLAME Wildfire Suppression Reserve Fund Total 0 0 0 0

Presidential Wildland Fire Contingency Reserve

Annual Appropriations

Presidential Wildland Fire Contingency Reserve 0 0 0 0

Annual Appropriations Total 0 0 0 0

Presidential Wildland Fire Contingency Reserve Total 0 0 0 0

Discretionary Funds Total 29,489 31,536 30,594 -942

Permanent Funds 1,351 1,329 1,296 -33

Trust Funds 1,025 1,029 970 -59

FTEs Only

Allocation 1,268 1,617 1,617 0

Discretionary Reimbursable 674 674 674 0

Working Capital Fund 588 575 565 -10

FTEs Only Total 2,530 2,866 2,856 -10

 Grand Total, Forest Service 34,395 36,760 35,716 -1,044
Overview of the FY 2011 President’s Budget Page 19 of 40

Three-Year Receipts by Source and Payments to States

Revenue, Receipts, and Transfers FY 2009 FY 2010 FY 2011

1908 Act Receipt?

ACTUAL ESTIMATE Pres. Bud.

Timber Management

National Forest Fund (NFF) Receipts 15,860 25,000 30,000 Yes

Mandatory Transfers from NFF:

 Timber Roads--Purchaser Election Program -4,000 -4,000 -4,000

Acquisition of Lands for National Forests, Special Acts 1/ -200 -200 -300

Ten-Percent Roads and Trails Fund 1/ -2,000 -2,700 -3,200

Timber Sale Area Improvement (Knutson-Vandenberg Fund) 196,171 50,000 51,750 Yes

Timber Salvage Sales 23,867 32,000 23,000 Yes

Timber Sales Pipeline Restoration Fund 7,735 7,000 7,000 Yes

Credits to Timber Purchasers (not receipts)

Credits for Road Construction (sales before April 1, 1999) (27) (50) (50) Yes

Specified Road Costs (13,776) (20000) (20000) Yes

Brush Disposal 7,868 11,000 11,385

Forest Botanical Products 1,844 2,250 2,330

Total Timber Management Receipts 253,345 127,250 125,465

Total Timber Management Receipts and Credits 267,148 147,300 145,515

Total Timber Management Deposits to NFF 9,660 18,100 22,500

Grazing Management

National Forest Fund (NFF) Receipts 5,254 5,250 5,250 Yes

Grasslands and Land Utilization Projects (LUP) 405 420 420 No

Mandatory Transfers from NFF & Grasslands & LUP's:

Range Betterment Fund (50 Percent Grazing) -2,581 -2,630 -2,630

Acquisition of Lands for National Forests, Special Acts 1/ -60 -50 -50

Ten-Percent Roads and Trails Fund 1/ -600 -600 -600

Total Grazing Management Receipts 5,659 5,670 5,670

Total Grazing Management Deposits to NFF & Grasslands Fund 2,418 2,390 2,390

Minerals Management

National Forest Fund (NFF) Receipts 1,410 2,500 2,500 Yes

Minerals Receipts on Acquired Lands to NFF from Minerals Mgt Service 26,556 50,000 50,000 Yes

Grasslands and Land Utilization Projects (LUP) 57,370 50,000 50,000 No

Mandatory Transfers from NFF:

Acquisition of Lands for National Forests, Special Acts 1/ -20 -20 -20

Ten-Percent Roads and Trails Fund 1/ -200 -300 -300

Mineral Leases on Public Domain Lands and Oregon and California Grant 

Lands, estimated 2/ 540,000 500,000 500,000

Total Minerals Management Receipts 85,336 102,500 102,500

Minerals Management Receipts incl DOI reciepts 625,336 602,500 602,500

Total Minerals Management Deposits to NFF and Grasslands Fund 85,116 102,180 102,180
Overview of the FY 2011 President’s Budget Page 20 of 40

Three-Year Receipts by Source and Payments to States

Landownership Management

National Forest Fund (NFF) Receipts - Land Uses 14,762 16,000 18,000 Yes

National Forest Fund (NFF) Receipts - Power 5,293 5,500 5,700 Yes

Grasslands and Land Utilization Projects (LUP) -Land Uses & Power 251 255 260 No

Mandatory Transfers from NFF:

Acquisition of Lands for National Forests, Special Acts 1/ -230 -210 -220

Ten-Percent Roads and Trails Fund 1/ -2,500 -2,300 -2,500

Acquisition of Lands to Complete Land Exchanges 41 250 250

Administration of Rights-of-Way, Other Land Uses 4,768 6,900 8,500

Power Licenses on Public Domain Lands, estimated 2/ 20,000 20,000 20,000

Total Landownership Management Receipts 24,864 28,650 32,450

Landownership Management Receipts incl DOI reciepts 44,864 48,650 52,450

Total Minerals Management Deposits to NFF and Grasslands Fund 17,576 19,245 21,240

Recreation Management Revenues and Receipts

National Forest Fund - Recreation, Admission, and User Fees 50,171 51,000 52,500 Yes

Mandatory Transfers from NFF:

Acquisition of Lands for National Forests, Special Acts 1/ -600 -500 -500

Ten-Percent Roads and Trails Fund 1/ -6,200 -5,400 -5,600

Federal Lands Recreation Enhancement Fund 66,477 67,000 67,500

Grey Towers National Historic Site Fund 0 0 0

Land Between the Lakes (LBL) Management Fund 3,756 4,300 4,500

Land Between the Lakes (LBL) Trust Fund 99 255 260

Total Recreation Management Receipts 120,503 122,555 124,760

Total Recreation Management Deposits to NFF 43,371 45,100 46,400

Other Revenues and Receipts

Grasslands and Land Utilization Projects (LUP)- all other 6 10 10 No

Stewardship Contracting retained receipts 5,724 4,500 4,660

Cooperative Contributions 22,730 50,000 51,750

Midewin NTP Restoration Fund & Rental Fees 548 1,100 1,100

Licensee Programs 90 66 68

Operation and Maintenance of Quarters 8,061 9,000 9,000

Federal Land and Facility Enhancement Fund 8,768 50,000 25,000

Restoration of Forestlands and Improvements 45,027 35,000 35,000

Gifts, Donations, and Bequests for Research 50 50 50

Valles Caldera Fund 651 1,000 1,000

Total Other Receipts 91,655 150,726 127,638

Total Other Deposits to Grasslands Fund 6 10 10

Total Forest Service Revenue and Receipts 581,362 537,351 518,483

Total Revenue and Receipts from Forest Service Lands 1,141,362 1,057,351 1,038,483

Total Deposits to NFF before Mandatory Transfers 119,306 155,250 163,950

Total Deposits to Grasslands Fund before Mandatory Transfers 58,032 50,685 50,690

Total Deposits to NFF & Grasslands after Mandatory Transfers 158,147 187,025 194,720

Deposits & Credits Basis for Act of 1908 (25% Fund) 392,358 264,985 266,440
Overview of the FY 2011 President’s Budget Page 21 of 40

Three-Year Receipts by Source and Payments to States

Payments and Transfers for States and Counties. 3/

Payments and Transfers from National Forest Fund Receipts

Payment to Minnesota 2,102 6,150 6,150

Payments to States, Act of 1908 (as amended) 9,657 9,755 10,000

Secure Rural Schools & Community Self-Determination Act

Payment to States, Title I & III 71,156 35,944 33,000

Transfer to Forest Service, Title II 5/ 51,813 44,721 45,000

Payments from U.S. Treasury funds

Secure Rural Schools & Community Self-Determination Act

Payment to States, Title I & III 395,000 386,700 348,000

Payments from National Grasslands and Land Utilization Project receipts

Payments to Counties 15,718 13,000 13,000

Total Payments and Transfers for States and Counties 545,446 496,270 455,150

Funds to Treasury for National Forest Fund Receipts after Payments and 

Transfers 4/ 22,303 11,446 0

Funds to Treasury for National Grasslands and Land Utilization Projects 

after Transfers by Special Acts 4/ 47,942 40,000 45,000

Acquisition of Lands for National Forests, Special Acts 1,050 1,050 1,050

Ten-Percent Roads and Trails Fund 11,446 11,200 12,100

3/ Payments and Transfers made from the National Forest fund are earned in the previous fiscal year and paid from those previous 

years receipts in the fiscal year shown. 

2/ Represents receipts from NFS lands which are deposited directly to Department of Interior and Department of Energy.

1/ Acquisition of Lands for National Forests, Special Acts are transferred from receipts of certain national forests. Ten-Percent 

Roads and Trails Fund are transferred from National Forest Fund receipts. These funds are split in this report based on an estimated 

proration against the various activities in order to show approximate activity totals, however the amounts are not determined, nor 

recorded, on an activity by activity basis as shown here. Total amounts transferred from NFF are shown below:
Overview of the FY 2011 President’s Budget Page 22 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Discretionary Funds

Forest & Rangeland Research

Forest & Rangeland Research

Customer satisfaction index score for R&D 72 72 72 75 75 75

Number of patent applications filed (3-year average) 12 11 6 6 6 6

Percent of R&D programs that have been externally peer-reviewed 

within the last 5 years 25% 50% 75% 100% 100% 100%

Number of R&D programs that have been externally peer-reviewed 

within the last 5 years 2 2 6 8 8 8

Percent of peer-reviewed R&D programs that achieve a rating of 

satisfactory or excellent during the last 5 years 100% 100% 100% 100% 100% 100%

Percent of Nation with accessible FIA data 84% 88% 92% 92% 92% 92%

Quality Science Index - peer-reviewed fire science publications per 

scientist year on a 3-year rolling average 3.5 3.5 3.5 3.5 3.5 3.5

Output Efficiency Index - total fire science products per scientist year 

on a 3-year rolling average p p , y g 5.1 5.0 5.1 5.0 5.0 5.0

average p p y g g j 171 170 180 177 163 163

budgets $242,000 $238,000 $207,000 $198,000 $426,000 $426,000
Overview of the FY 2011 President’s Budget Page 23 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Discretionary Funds

State & Private Forestry

Forest Health Management - Federal Lands

Federal acres treated - Invasives 111,600 60,029 154,169 164,495 172,930 168,408

Federal acres treated - Native pests 26,846 49,136 27,156 171,220 177,512 174,925

Forest Health Management - Cooperative Lands

Cooperative lands acres treated - Invasives 589,298 580,629 859,039 690,807 554,440 455,966

Cooperative lands acres treated - Native pests 134,346 152,440 121,324 105,952 104,805 75,735

State Fire Assistance

Communities assisted (number) 4,290 16,658 11,569 6,896 1,345 1,197

Volunteer Fire Assistance

Volunteer fire departments assisted (number) 3,062 10,157 5,591 4,255 2,600 2,600

Forest Stewardship Program

Percentage of nonindustrial private forest acres in important forest 

resource areas being managed sustainably, as defined by a current 

Forest Stewardship Plan N/A 0.5% 1.8% 2.6% 10.0% 10.0%

Acres of nonindustrial private forest land that are being managed 

sustainably under forest stewardship management plans. (Annual) 1,760,000 1,715,206 1,888,904 2,076,447 2,000,000 2,250,000

Acres of nonindustrial private forest land that are being managed 

sustainably under forest stewardship management plans. (Cumulative) 15,133,689 16,848,895 18,737,799 18,582,449 22,000,000 23,500,000

Forest Legacy Program

Acres of environmentally important forests protected from 

conversion (Cumulative) y p p N/A 1,448,091 1,643,078 1,897,809 2,085,809 2,300,809

conversion (Annual) 361,467 88,091 194,987 176,471 188,000 215,000

Parcelization of forests avoided (number of parcels prevented) 19,342 2,880 13,392 7,161 5,699 10,506

Urban & Community Forestry

Percentage of people living in communities managing programs to 

plant, protect, and maintain their urban and community trees and 

forests. 37.0% 38.0% 39.6% 42.0% 37.0% 37.0%

Percentage of people living in communities developing programs 

and/or activities to plant, protect, and maintain their urban and 

community trees and forests. 36% 34% 38% 34% 38% 38%
Overview of the FY 2011 President’s Budget Page 24 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Discretionary Funds

National Forest System

Integrated Resource Restoration

Number of watersheds in Condition Class 1 N/A N/A N/A N/A 3,857 3,876

Number of watersheds in Condition Class 2 N/A N/A N/A N/A 5,476 5,500

Number of watersheds in Condition Class 3 N/A N/A N/A N/A 3,303 3,260

Acres treated annually to sustain or restore watershed function and 

resilience N/A N/A N/A N/A N/A 2,000,000

Land Management Planning

Number of land management plan amendments underway 23 36 31 48 46 30

Number of land management plan revisions or creations underway 50 41 39 39 17 23

Inventory & Monitoring

Acres of inventory data collected and acquired N/A 20,860,388 25,223,812 55,191,314 23,200,000 21,520,000

Number of annual monitoring requirements completed N/A 1,487 2,021 1,462 1,285 1,400

Number of land management plan assessments completed 97 52 66 73 28 40

Recreation, Heritage & Wilderness

Number of recreation site capacity (PAOT days) operated to standard 82,482,208 69,686,938 72,288,992 74,364,856 78,800,000 79,780,000

Percentage of NFS lands covered by travel management plans resulting 

in visitor safety, resource protection using best management practices, 

and less visitor conflict with off-road vehicle usage p 0.3% 13.0% 27.0% 43.7% 98.0% 100.0%

standard 10,091 9,524 13,119 21,070 13,250 13,250

Number of priority heritage assets managed to standard N/A 1,982 2,830 3,447 3,030 3,250

Number of wilderness areas managed to minimum stewardship level 61 67 102 128 138 204

Number of wild and scenic river areas meeting statutory requirements 47 45 28 39 41 43

Customer satisfaction with value for fee paid N/A 83% 83% 83% 85% 85%

Wildlife & Fisheries Habitat Management

Miles of stream habitat restored or enhanced 1,655 1,542 2,346 3,498 2,600 2,900

Acres of lake habitat restored or enhanced 15,996 13,002 18,290 23,570 19,060 20,000

Acres of terrestrial habitat enhanced 278,811 273,562 1,962,962 2,153,749 1,607,646 1,500,000
Overview of the FY 2011 President’s Budget Page 25 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Discretionary Funds

National Forest System

Grazing Management

Allotment acres administered to 100% of Forest Plan standards 49,583,208 42,775,483 36,119,640 35,774,408 30,665,909 29,420,000

Number of grazing allotments with signed decision notices 443 670 470 370 466 460

Forest Products

Volume of timber sold (hundred cubic feet (CCF)) 2,956,316 3,111,523 4,753,979 4,829,254 5,093,400 4,800,000

Volume of timber sold (million board feet (MMBF)) 1,530 1,610 2,484 2,415 2,546 2,400

Volume of timber harvested (CCF) 4,427,703 3,794,744 3,939,551 3,768,349 3,968,000 N/A

Volume of timber harvested (MMBF) 2,296 1,960 2,049 1,884 1,984 N/A

Forestlands treated to achieve healthier conditions N/A 57,756 29,911 16,527 120,380 N/A

Vegetation & Watershed Management

Acres of forest vegetation improved 62,185 60,658 240,058 264,500 252,724 N/A

Acres of forest vegetation established 33,827 73,921 210,945 269,345 243,728 N/A

Acres of rangeland vegetation improved 1,755,824 2,021,505 867,748 1,892,194 2,048,080 N/A

Acres of watershed improvement 16,934 27,297 105,288 203,508 59,896 N/A

Acres of noxious weeds and invasive plants treated 79,069 128,223 258,261 304,106 212,581 N/A

Minerals & Geology Management

Number of mineral operations administered 15,152 11,718 14,857 14,613 12,350 12,350

Number of mineral applications processed 11,632 10,604 12,649 11,187 9,840 9,840

Number of new Applications for Permits to Drill (APDs) processed 

within prescribed timeframes 115 502 109 112 325 325

Number of AML safety risk features mitigated to "no further action" 346 403 494 519 662 680

Number of administrative units where audits were conducted 20 0 28 25 26 26

Number of contaminated sites mitigated N/A N/A 47 75 32 32

Landownership Management

Acres of land adjustments to conserve the integrity of undeveloped 

lands and habitat quality 14,719 27,002 42,243 14,691 49,560 64,200

Miles of landownership boundary line marked/maintained to standard 2,334 2,606 3,868 4,418 3,200 3,770

Number of land use authorizations administered to standard 12,708 14,797 15,753 16,683 16,000 16,000

Number of land use proposals and applications processed 4,611 5,111 4,991 4,542 4,980 4,290

Law Enforcement O perations

Percent of cases referred for adjudication N/A 4.3% 8.0% 8.3% 8.2% 8.3%

Number of documented law enforcement incidents per 10,000 forest 

visits N/A 6.3 7.2 7.6 7.5 7.6
Overview of the FY 2011 President’s Budget Page 26 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Discretionary Funds

Capital Improvement & Maintenance

Facilities

Facilities condition index 89% 89% 62% 87% 86% 86%

Percent of facilities with "Good" or "Fair" condition rating 64% 66% 63% 66% 68% 65%

Number of outdoor recreation facilities maintained to standard 9,770 10,231 10,129 10,553 11,680 11,490

FA&O facilities maintained to standard N/A 11,881 11,024 11,457 12,663 11,500

Roads

Miles of passenger car roads receiving maintenance 43,073 39,453 46,247 50,592 50,889 31,000

Miles of high clearance system roads receiving maintenance 28,598 20,725 29,638 34,411 30,440 24,000

Miles of roads decommissioned 682 402 1,290 1,778 1,519 950

Miles of road reconstruction and capital improvement 179 617 3,501 4,352 5,225 0

Percent of road and trail rights-of-way acquired that provide public 

access through easement acquisitions or land adjustments 94% 90% 78% 67% 85% 85%

Trails

Miles of system trails maintained to standard 24,860 25,696 30,867 38,383 31,565 31,200

Miles of system trail improved to standard 1,410 1,594 1,410 1,473 925 900

Deferred Maintenance & Infrastructure Improvement

Miles of high clearance system roads receiving maintenance N/A 0 44 16 50 50

Miles of passenger car roads receiving maintenance N/A 0 174 80 175 160

Miles of road reconstruction and capital improvement N/A 153 14 7 20 29

Miles of trails maintained to standard N/A 0 50 11 50 50

Miles of system trail improved to standard N/A 0 0 0 0 0

FA&O facilities maintained to standard N/A 0 0 0 0 0

Number of outdoor recreation facilities maintained to standard N/A 0 0 0 0 0

Legacy Roads & Trails

Miles of passenger car roads receiving maintenance N/A N/A 633 666 900 600

Miles of high clearance system roads receiving maintenance N/A N/A 900 1,196 1,440 1,000

Miles of roads decommissioned N/A N/A 531 929 660 850

Miles of road reconstruction and capital improvement N/A N/A 631 733 1,560 700

Miles of trails maintained to standard N/A N/A 849 162 850 275

Miles of system trail improved to standard N/A N/A 22 28 45 30
Overview of the FY 2011 President’s Budget Page 27 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Discretionary Funds

Land Acquisition

Land Acquisition

Number of acres acquired or donated 49,363 125,742 83,757 27,449 20,800 23,900

Priority acres acquired or donated that reduce the conversion of N/A N/A N/A N/A N/A N/A

forests, grasslands, and aquatic and riparian ecosystems to 

incompatible uses in order to improve and maintain ecological 

conditions for federally listed and candidate species, species of concern 

and species of interest 31,460 20,377 32,915 20,495 16,640 20,100

Other Appropriations

Range Betterment Fund

Number of range structural improvements 44 270 516 374 500 370

Wildland Fire Management

Preparedness

Percent change from the 10-year average for the number of wildfires 

controlled during initial attack. -0.4% -1.0% -0.4% 0.3% 0.5% 0.5%

Percent change from the 10-year average for the number of human 

caused wildfires. 4.5% -0.9% 2.0% 5.0% -1.0% -1.0%

Fire O perations - Suppression

Percent of fires not contained in initial attack that exceed a Stratified 

Cost Index (SCI) 26.5% 22.0% 24.3% 22.0% 19.0% 18.0%

Three-year average percent of fires not contained in initial attack that 

exceed a Stratified Cost Index (SCI) N/A 23.9% 22.4% 20.4% 20.4% 19.6%
Overview of the FY 2011 President’s Budget Page 28 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Discretionary Funds

Wildland Fire Management

Hazardous Fuels

Acres of wildland-urban interface (WUI) high-priority hazardous fuels 

treated N/A 1,138,351 1,944,268 2,189,820 1,470,000 1,600,000

Percentage of total National Forest System land base for which fire 

risk is reduced though movement to a better condition class. 1.1% 1.9% 2.1% 2.4% 3.0% 3.1%

Number of acres maintained and improved by treatment category 

(prescribed fire, mechanical treatment, and wildland fire use). N/A N/A 1,211,395 1,945,927 1,300,000 1,238,095

Percent of acres maintained and improved by treatment category 

(prescribed fire, mechanical treatment, and wildland fire use) that 

changed condition class. p g N/A N/A 27% 27% 30% 30%

investment. p g N/A N/A 4,103 4,482 3,900 3,614

investment. 1,934 1,809 1,721 1,487 1,500 1,428

Number of acres treated to restore fire-adapted ecosystems which are 

moved toward desired conditions 991,075 970,641 699,062 799,215 1,180,000 960,000

Percent of acres treated to restore fire-adapted ecosystems which are 

moved toward desired conditions 39% 32% 23% 27% 49% 40%

Number of acres treated to restore fire-adapted ecosystems which are 

maintained in desired conditions. 830,081 1,022,144 986,507 1,146,720 1,128,000 1,200,000

Percent of acres treated to restore fire-adapted ecosystems which are 

maintained in desired conditions. 33.0% 33.0% 32.0% 38.0% 47.0% 50.0%

Percent of treated acres identified in Community Wildfire Protection 

Plans or equivalent plans. 17.0% 24.7% 36.0% 41.0% 41.0% 75.0%
Overview of the FY 2011 President’s Budget Page 29 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Discretionary Funds

Wildland Fire Management

NFP Research & Development

Customer satisfaction index score for R&D 72 72 72 75 75 75

NFP Forest Health Management - Federal Lands

Federal acres treated under NFP - Invasives 1,588 1,602 190 9,935 6,000 6,000

Federal acres treated under NFP - Native pests 39,668 21,146 20,028 39,781 26,097 19,037

NFP Forest Health Management - Cooperative Lands

Acres treated on cooperative lands under NFP - Invasives 192,850 158,234 120,732 117,705 117,411 70,880

Acres treated on cooperative lands under NFP - Native pests 8,441 12,456 782 4,684 2,438 3,061

NFP State Fire Assistance

Communities at risk from wildfire assisted - NFP (number) 7,150 29,064 17,353 13,154 10,500 8,200

NFP Volunteer Fire Assistance

Volunteer fire departments assisted - NFP (number) 4,058 5,789 8,386 6,382 3,900 3,000

Permanent Funds

Brush Disposal

Brush Disposal

Acres of harvest related woody fuels treated 29,130 70,940 59,411 74,669 55,000 60,000

Salvage Timber Sales

Timber Salvage Sales

Volume of salvage timber sold (hundred cubic feet (CCF)) 1,862,175 978,050 871,054 588,081 390,432 367,400

Volume of salvage timber sold (million board feet (MMBF)) 974 517 472 294 195 184
Overview of the FY 2011 President’s Budget Page 30 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Permanent Funds

Stewardship Contracting

Stewardship Contracting

Acres of forest vegetation established 47 111 784 1,344 1,166 1,400

Acres of forest vegetation improved 13,008 14,275 15,854 16,338 23,573 25,000

Acres of noxious weeds/ invasive plant treatments 30 193 869 6,535 1,292 7,000

Acres of wildlife habitat restored or improved 4,022 12,196 5,804 36,334 8,630 15,000

Miles of stream habitat restored or enhanced 2 87 15 47 99 50

Miles of roads decommissioned 68 29 62 9 39 35

Miles of high clearance system roads improved N/A 129 105 116 148 135

Miles of passenger car system roads improved N/A 35 98 54 44 60

Volume of timber sold (hundred cubic feet (CCF)) 471,996 655,072 678,328 743,417 825,000 830,000

Volume of timber sold (million board feet (MMBF)) 241 331 339 0 413 415

Green tons of biomass made available for energy production 70,147 383,767 213,238 467,266 376,000 400,000

Acres of stewardship contracts / agreements awarded 60,344 77,676 65,890 88,304 121,000 135,000

Acres of hazardous fuels treated to reduce the risk of catastrophic 

fires 59,152 49,938 58,067 69,607 86,339 60,000

Acres of wildland-urban interface (WUI) high-priority hazardous fuels 

treated 35,727 34,285 35,617 36,858 38,500 40,000

Number of stewardship contracts / agreements contributing to 

watersheds in fully functioning condition (number) 7 4 7 4 12 6

Timber Sales Pipeline

Timber Sales Pipeline Preparation

Volume of pipeline timber prepared (hundred cubic feet (CCF)) 895,639 528,827 535,120 571,061 450,000 649,000

Volume of pipeline timber prepared (million board feet (MMBF)) 448 264 268 285 225 325

Forest Botanical Products

Forest Botanical Products

Sold value of forest botanical products $2,244,191 $2,503,442 $1,075,452 $1,773,732 $2,250,000 $2,250,000
Overview of the FY 2011 President’s Budget Page 31 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Trust Funds

Cooperative Work, Knutson-Vandenberg

Knutson-Vandenberg

Acres of forest vegetation established 63,112 62,195 59,135 50,622 75,373 55,700

Acres of forest vegetation improved 59,426 61,381 44,679 33,662 59,159 49,250

Highest priority acres treated annually for noxious weeds and invasive 

plants on NFS lands 14,119 19,977 18,502 13,234 25,293 37,700

Acres of lake habitat restored or enhanced with non-Wildlife funds 11 1,118 1,006 1,183 172 180

Miles of stream habitat restored or enhanced 19 2 9 2 12 45

Acres of wildlife habitat (terrestrial) (TES and Non-TES) restored or 

improved with non-Wildlife dollars N/A 99,663 103,518 87,997 190,869 195,000

Miles of roads decommissioned 18 61 22 66 0 0

Miles of high clearance system roads improved N/A 33 0 4 0 0

Miles of passenger car system roads improved N/A 13 0 2 0 0

Number of stream crossings constructed or reconstructed to provide 

for aquatic organism passage 0 15 2 1 0 0

Acres of hazardous fuels treated to reduce risk of catastrophic fire N/A 129,864 146,604 71,538 31,503 30,000

Acres of rangeland vegetation improved 1,178 168 3,418 508 2,118 1,300

Acres of watershed improvement N/A 4,670 3,420 3,205 10,837 8,290
Overview of the FY 2011 President’s Budget Page 32 of 40

Activity and Output/Outcome by Appropriation & Budget Line Item

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Trust Funds

Cooperative Work, Knutson-Vandenberg Regional Work

Knutson-Vandenberg Regional Work

Acres of forest vegetation established 39,641 6,134 151 99 500 0

Acres of forest vegetation improved N/A 4,570 767 1,441 0 0

Forestlands treated to achieve healthier conditions N/A 57,756 29,911 16,527 11,000 7,000

Miles of property line maintained to standard N/A 14 0 N/A 0 0

Miles of landownership boundary line marked/maintained to standard N/A 36 6 17 0 0

Miles of property line marked to standard N/A 22 0 N/A 0 0

Miles of high clearance system roads receiving maintenance 692 1,811 136 N/A 0 0

Miles of road maintenance 1,908 3,609 0 51 0 0

Miles of passenger car roads receiving maintenance 1,216 1,799 272 N/A 0 0

Acres of hazardous fuels treated to reduce risk of catastrophic fire N/A 45,951 10,806 2,187 0 0

Acres of wildland-urban interface (WUI) high-priority hazardous fuels 

treated 110,893 35,588 5,549 91 0 0

Highest priority acres treated annually for noxious weeds and invasive 

plants on NFS lands 40,798 6,993 2,706 1,679 0 0

Acres of rangeland vegetation improved 860 0 0 103 0 0

Acres of watershed improvement 773 242 2 0 0 0

Acres of lake habitat restored or enhanced with non-Wildlife funds 12 345 0 0 0 0

Miles of stream habitat restored or enhanced N/A 2 0 0 0 0

Acres of wildlife habitat (terrestrial) (TES and Non-TES) restored or 

improved with non-Wildlife dollars N/A 9,769 46 147 0 0

Reforestation Trust Fund

Reforestation Trust Fund

Acres of forest vegetation established N/A 70,290 71,731 56,567 50,050 50,300

Acres of forest vegetation improved N/A 22,782 26,231 33,841 23,397 17,000
Overview of the FY 2011 President’s Budget Page 33 of 40 FY 2011 FACILITIES MAJOR PROJECT LIST ($ in thousands) Region 1 Facilities Roads Regionwide Planning & Design* $ 46 $ 135 $ 116 $ 91 $ 162 $ 226 $ 388 $ 388 $ 2,339 $ 1,161 $ 765 Regionwide Minor Capital Improvement Projects**

N $ 712 $ $ 712 $ 712 $ 244 $ 103

R101 ID 1 Nez Perce Red River H2O & Waste 

System Replacement

N $ 886 $ 886 $ $ 886 $ 886

R102 ID 1 Idaho Panhandle Couer d'Alene Nursery Roof 

Replacement

N $ 498 $ 498 $ $ 498 $ 498

R103 MT 1 Regional Office Aerial Fire Depot Siding Y $ 274 $ 274 $ $ 274 $ 274

R104 ID 1 Idaho Panhandle Fernan HVAC Renovation N $ 818 $ 818 $ $ 818 $ 818R105 MT 1 Lewis and Clark Cave Mountain/West Fork 

Campground 

N $ 266 $ $ 266 $ 266 $ 241 $ 350

 TOTAL $ 46 $ 1,113 $ 2,592 $ 91 $ 2,638 $ 1,204 $ 3,842 $ 873 $ 5,268 $ 1,161 $ 765

Region 2

Facilities Roads

Regionwide Planning & Design* $ 163 $ 120 $ 91 $ 100 $ 254 $ 220 $ 474 $ 45 $ 3,463 $ 5,973 $ 885Regionwide Minor Capital Improvement 

Projects**

$ $ $ 

R201 WY 1 Med Bow-Routt Centennial Visitor Information 

Center

N $ 360 $ $ 360 $ 360 $ 66

R202 CO 3 Grand Mesa, 

Unc, Gunnison

Columbine Recreation Area N $ $ 325 $ $ 325 $ 325 $ 300 $ 217

R203 NE 1 Nebraska Richland Dam Repair N $ 144 $ 389 $ 144 $ 389 $ 533 $ 144

R204 CO 5 Pike/San Isabel O'Haver Lake Campground 

Rehabilitation

N $ 569 $ 569 $ $ 569 $ 177 $ 344

R205 CO 2 ArapahoRoosevelt Pawnee Campground & Day Use Area - Phase 2

N $ 765 $ $ 765 $ 765 $ 581 $ 765 $ 1,181 $ 1,086

R206 CO 2 ArapahoRoosevelt Berthoud Pass Trailhead Completion

N $ 366 $ $ 366 $ 366 $ 

R207 WY 1 Bighorn Paintrock Lakes Campground 

& Trailhead Rehabilitation

N $ 616 $ $ 616 $ 616 $ 87 $ 367

R208 CO 3 Rio Grande Big Meadows Campground 

Rehabilitation, Phase 2

N $ 250 $ 250 $ 250 $ 250 $ 500 $ 275 $ 206

 TOTAL $ 982 $ 2,802 $ 235 $ 489 $ 1,217 $ 3,291 $ 4,508 $ 1,465 $ 5,572 $ 7,154 $ 1,971

 ID

FY 2011 Facilities Funding

Fire

Fac?

(Y/N) Project Name Forest/Lab

Cong

District State

Project Name

Fire

Fac?

(Y/N) ID State

Cong

District Forest/Lab

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

FAC.

Mtce.

TOTAL

FAC.

Imp.

TOTAL

FAC. 

REC

Mtce.

RECImp.

FY 2011 Facilities Funding

TOTAL

RDS.

TOTAL

FAC. 

TOTAL

RDS.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011
Overview of the FY 2011 President’s Budget Page 34 of 40 FY 2011 FACILITIES MAJOR PROJECT LIST ($ in thousands) Region 3 Facilities Roads Regionwide Planning & Design* $ 294 $ 80 $ $ 368 $ 294 $ 448 $ 742 $ $ 316 $ 1,286 $ 350 Regionwide Minor Capital Improvement Projects** $ $ $ $ $ $ $ R301 NM 2 Cibola Magdalena Administrative Site, Phase 2

N $ 3,324 $ $ 3,324 $ 3,324 $ 450 $ 535 $ 3,133 $ 100

R302 AZ 8 Coronado Rose Canyon Campground, 

Phase 2

N $ 848 $ 848 $ $ 848 $ 400 $ 1,200 $ 483

 TOTAL $ 1,142 $ 80 $ 0 $ 3,692 $ 1,142 $ 3,772 $ 4,914 $ 850 $ 2,051 $ 4,902 $ 450

Region 4

Facilities Roads

Regionwide Planning & Design* $ $ $ $ 250 $ $ 250 $ 250 $ $ 360 $ 5,615 $ Regionwide Minor Capital Improvement 

Projects**

$ $ $ $ $ $ $ $ $ $ $ 

R401 ID 1 Payette McCall Helibase Project 1/ Y $ 2,060 $ $ 2,060 $ 2,060

R402 UT Ashley Lucerne Campground 

Reconstruction 1/

N $ 2,000 $ $ 2,000 $ $ 2,000 $ 1,950 $ 4,000

R403 UT 2 Dixie Cedar City Maintenance Shop N $ 1,425 $ $ 1,425 $ 1,425 $ $ 800 $ $ 

R405 ID 2 Caribou-Targhee Caribou-Targhee 

Administrative Facilities

N $ 2,270 $ $ 2,270 $ 2,270 $ $ $ 

 TOTAL $ 2,000 $ 0 $ 0 $ 6,005 $ 2,000 $ 6,005 $ 8,005 $ 1,950 $ 5,160 $ 5,615 $ 0

Region 5

Facilities Roads

Regionwide Planning & Design* $ $ $ $ 167 $ $ 167 $ 167 $ 7 $ 4,127 $ 4,695 $ 177Regionwide Minor Capital Improvement 

Projects**

$ $ $ 

R501 CA 22 Angeles Fox Airbase Improvements, 

Phase 1 1/

Y $ 2,000 $ $ 2,000 $ 2,000 $ 1,336

R501 CA 3 Mendocino Upper Lake District Office 

Renovation

N $ 1,704 $ $ 1,704 $ 1,704 $ 15 $ 887

R502 CA 3 Tahoe Big Bend Engine Garage Y $ 1,673 $ $ 1,673 $ 1,673 $ 700

R503 CA 2 Six Rivers Mad River Duplex Renovation N $ 395 $ 365 $ 395 $ 365 $ 760 $ 365

 TOTAL $ 0 $ 0 $ 395 $ 5,908 $ 395 $ 5,908 $ 6,303 $ 22 $ 7,415 $ 4,695 $ 177

FY 2011 Facilities FundingFY 2011 Facilities Funding

Project Name

Fire

Fac?

(Y/N)

REC

Mtce.

RECImp.

TOTAL

FAC. 

TOTAL

RDS.

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp. ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

REC

Mtce.

RECImp.

TOTAL

FAC. 

TOTAL

RDS.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp. ID State

Cong

District Forest/Lab

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

FY 2011 Facilities Funding

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

TOTAL

FAC. 

TOTAL

RDS.
Overview of the FY 2011 President’s Budget Page 35 of 40 FY 2011 FACILITIES MAJOR PROJECT LIST ($ in thousands) Region 6 Facilities Roads Regionwide Planning & Design* $ $ 192 $ 260 $ 80 $ 260 $ 272 $ 532 $ $ 4,242 $ 4,163 $ Regionwide Minor Capital Improvement Projects** $ $ $ $ 225 $ $ 225 $ 225 $ $ 160 $ $ R601 OR 2 Wallowa- Whitman La Grande (OR) Air Tanker Base Apron Repair 1/ Y $ 1,669 $ 1,669 $ $ 1,669 $ 1,087 R602 OR 3 Mount Hood Zigzag Ranger District Office Consolidation N $ 1,400 $ $ 1,400 $ 1,400 $ 302 R603 OR 4 Rogue River- Siskiyou Union Creek Water System N $ 580 $ 580 $ $ 580 $ 308 R604 OR 4 Willamette N Waldo-Islet Campground Water System N $ 430 $ 430 $ $ 430 $ 600 TOTAL $ 1,010 $ 192 $ 1,929 $ 1,705 $ 2,939 $ 1,897 $ 4,836 $ 0 $ 6,699 $ 4,163 $ 0 Region 8 Facilities Roads Regionwide Planning & Design* $ $ $ $ 545 $ $ 545 $ 545 $ $ 1,000 $ 12,000 $ Regionwide Minor Capital Improvement Projects** $ $ $ R801 KY 5th Daniel Boone Twin Knobs Accessibility N $ 1,360 $ 1,360 $ $ 1,360 $ 850 $ $ R802 NC 11th North Carolina Appalachian Ranger District Office N $ 3,065 $ $ 3,065 $ 3,065 $ 61 R803 FL 8th Florida Clearwater Lake Bathhouse N $ 365 $ 365 $ $ 365 $ 154 TOTAL $ 1,725 $ 0 $ 0 $ 3,610 $ 1,725 $ 3,610 $ 5,335 $ 0 $ 2,065 $ 12,000 $ 0 Region 9 Facilities Roads Regionwide Planning & Design* $ $ $ $ $ $ $ $ $ $ $ Regionwide Minor Capital Improvement Projects** $ $ $ R901 MN 8 Superior Ely National Air Tanker Base 1/ Y $ 2,300 $ $ 2,300 $ 2,300 $ 100 R902 MN 8 Chippewa Walker Administrative Site Y $ 4,250 $ $ 4,250 $ 4,250 $ 1,200 $ 2,465 $ 200 $ 50 R903 MI 2 Huron Manistee Baldwin/White Cloud Ranger District Administrative Site Y $ 1,500 $ $ 1,500 $ 1,500 $ 250 $ 615 $ 4,650 $ 175

R904 WV Monongahela Lake Sherwood Campground N $ 903 $ 903 $ $ 903 $ $ 819

 TOTAL $ 903 $ 0 $ 0 $ 8,050 $ 903 $ 8,050 $ 8,953 $ 1,550 $ 3,899 $ 4,850 $ 225

Project Name

Fire

Fac?

(Y/N)

TOTAL

FAC. 

TOTAL

RDS. ID State

Cong

District Forest/Lab

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

TOTAL

FAC. 

TOTAL

RDS.

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

FY 2011 Facilities Funding

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

TOTAL

FAC. 

TOTAL

RDS.

FY 2011 Facilities Funding

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

FY 2011 Facilities Funding

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.
Overview of the FY 2011 President’s Budget Page 36 of 40

FY 2011 FACILITIES MAJOR PROJECT LIST

($ in thousands)

Region 10

Facilities Roads

Regionwide Planning & Design* $ $ 210 $ 529 $ 513 $ 529 $ 723 $ 1,252 $ $ 65 $ 7,905 $ Regionwide Minor Capital Improvement 

Projects**

$ 675 $ $ 675 $ 675 $ 85 $ 670

R1001 AK 1 Regionwide Mountain Communication 

Sites

N $ 1,182 $ 1,182 $ $ 1,182 $ 545

R1002 AK 1 Tongass Anan Administrative Facility N $ 696 $ $ 696 $ 696

R1003 AK 1 Tongass Cascade Creek Bunkhouse 

Renovation

N $ 516 $ 516 $ $ 516 $ 122

R1004 AK 1 Tongass White Sulphur Springs 

Reconstruction

N $ 463 $ 463 $ $ 463 $ 234

 TOTAL $ 463 $ 885 $ 2,227 $ 1,209 $ 2,690 $ 2,094 $ 4,784 $ 0 $ 1,051 $ 8,575 $ 0

Stations

Facilities Roads

Stationwide Planning & Design* $ $ $ 303 $ 260 $ 303 $ 260 $ 563 $ $ $ 4,939 $ Stationwide Minor Capital Improvement 

Projects**

$ 328 $ $ 328 $ 328 $ 214

S01 AK At Large Pacific SW Juneau Lab Collocation, 

Phase 2 1/

N $ $ 4,960 $ $ 4,960 $ 4,960 $ 1,330

S02 OR 2 Pacific NW LaGrande Warehouse 

Expansion

N $ 102 $ 327 $ 102 $ 327 $ 429 $ 102

S03 WI 7 Northern Rhinelander Lab Renovations N $ 200 $ 244 $ 200 $ 244 $ 444 $ 271

S04 MS 2 Southern Stoneville Lab Renovations N $ 784 $ 730 $ 784 $ 730 $ 1,514 $ 784S05 CO 4 Rocky Mountain Ft. Collins Prospect 

Renovations

N $ 1,091 $ 1,987 $ 1,091 $ 1,987 $ 3,078 $ 200 $ 1,600

S06 GA 12 Southern Athens Lab Renovations N $ 800 $ 100 $ 800 $ 100 $ 900 $ 816 $ 985S07 HI 2 Pacific SW Hawaii Experimental Forest 

Infrastructure, Phase 3

N $ 500 $ $ 500 $ 500 $ $ 500

 TOTAL $ 0 $ 0 $ 3,280 $ 9,436 $ 3,280 $ 9,436 $ 12,716 $ 200 $ 5,117 $ 6,424 $ 0

Northeastern Area

Facilities Roads

Areawide Planning & Design* 1/ $ $ $ $ 150 $ $ 150 $ 150 $ $ $ 825 $ 

 TOTAL $ 0 $ 0 $ 0 $ 150 $ 0 $ 150 $ 150 $ 0 $ 0 $ 825 $ 0

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

RECImp.

TOTAL

Mtce.

TOTAL

Imp.

FA&O

Imp.

TOTAL

RDS.

RECImp.

TOTAL

FAC. 

TOTAL

RDS.

TOTAL

Imp.

FY 2011 Facilities Funding

REC

Mtce.

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

REC

Mtce.

FA&O

Mtce.

TOTAL

Mtce. ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

REC

Mtce.

RECImp.

FY 2011 Facilities Funding

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

TOTAL

FAC. 

FA&O

Imp.

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

TOTAL

RDS.

FY 2011 Facilities Funding

TOTAL

FAC. 

FA&O

Mtce.
Overview of the FY 2011 President’s Budget Page 37 of 40 FY 2011 FACILITIES MAJOR PROJECT LIST ($ in thousands) TOTALS FOR REGIONS, STATIONS, AREA, and TECH CENTERS Facilities Roads Regional Subtotal $ 8,271 $ 5,072 $ 7,378 $ 30,759 $ 15,649 $ 35,831 $ 51,480 $ 6,710 $ 39,180 $ 53,115 $ 3,588 Stations Subtotal $ $ $ 3,280 $ 9,436 $ 3,280 $ 9,436 $ 12,716 $ 200 $ 5,117 $ 6,424 $ Northeastern Area Subtotal $ $ $ $ 150 $ $ 150 $ 150 $ $ $ 825 $ TOTAL, MAJOR PROJECT LIST $ 8,271 $ 5,072 $ 10,658 $ 40,345 $ 18,929 $ 45,417 $ 64,346 $ 6,910 $ 44,297 $ 60,364 $ 3,588 Recreation Maintenance Under $250,000 $ 51,720 $ $ $ $ 51,720 $ $ 51,720 $ $ $ $ Washington Office $ 2,896 $ 258 $ 541 $ 2,041 $ 3,437 $ 2,299 $ 5,736 $ $ $ Albuquerque Service Center Business Management $ 4,987 $ 422 $ 886 $ 3,341 $ 5,873 $ 3,763 $ 9,636 $ $ $ $ TOTAL, OTHER PROGRAM SUPPORT $ 59,603 $ 680 $ 1,427 $ 5,382 $ 61,030 $ 6,062 $ 67,092 $ $ $ $ TOTAL FACILITIES MAJOR PROJECT LIST $ 67,874 $ 5,752 $ 12,085 $ 45,727 $ 79,959 $ 51,479 $ 131,438 $ 6,910 $ 44,297 $ 60,364 $ 3,588 1/ Using a national competition process, these projects were selected by the agency's Asset Management Review Board (AMRB) and approved by the Executive Leadership Council. Notes: *Planning and Design (P&D) for capital investment projects costing more than $250,000. Project names are provided in the associated fact sheet. **Capital improvement projects costing less than $250,000. ID State Cong District Forest/Lab Project Name Fire Fac? (Y/N) FY 2011 Facilities Funding REC Mtce. REC Imp. FA&O Mtce. FA&O Imp. TOTAL Mtce. TOTAL Imp. TOTAL FAC. TOTAL RDS. DEF. MTCE. ELIM. Costs Beyond FY 2011
Overview of the FY 2011 President’s Budget Page 38 of 40

FY 2011 Proposed Land Acquisition Program 1/

(Dollars in Thousands)

1/ Project information required under H.R. 108-195 for operation and maintenance costs, third party 

involvement, and the long term national plan justification is being included in the project fact sheets provided 

under separate cover.

Project Name Forest State Amount

Rocky Fork Cherokee TN 6,000,000

Montana Legacy Completion Flathead/Lolo MT 6,000,000

Cube Cove Tongass AK 3,500,000

Packard Ranch - Phase III Coconino AZ 1,335,000

Hells Canyon NRA Wallowa-Whitman OR 2,800,000

Tenderfoot Lewis & Clark MT 4,000,000

Greater Yellowstone Multiple MT/ID 2,000,000

Missouri Ozarks Mark Twain MO 1,100,000

Idaho Wilderness Wild & Scenic Rivers Salmon-Challis ID 1,000,000

Uinta-Wasatch-Cache Uinta-Wasatch-Cache UT 500,000

Pacific NW Streams Multiple OR/WA 1,500,000

Ophir Valley Uncompahgre CO 1,000,000

North Carolina NFs in North Carolina NC 1,500,000

Summers Meadows Humboldt-Toiyabe CA 2,400,000

Sierra Nevada Checkerboard Tahoe/Eldorado CA 2,000,000

Lady C Ranch Black Hills SD 915,000

Shield Ranch Coconino AZ 1,500,000

Great Lakes/Great Lands (Upper) Hiawatha/Ottawa MI 1,300,000

Eldorado Meadows Eldorado CA 1,500,000

Little Echo Lake Arapaho CO 950,000

Columbia River Gorge NSA Multiple WA 850,000

Washington Cascade Ecosystem Wenatchee WA 1,500,000

Consolidation Shasta-Trinity CA 1,300,000

Minnesota Wilderness Superior/Chippewa MN 1,400,000

Suwannee Wildlife Corridor NFs in Florida FL 2,000,000

Upper Lochsa Clearwater ID 2,000,000

Fossil Creek Coconino AZ 900,000

Georgia Mountains Chattahoochee-Oconee GA 1,700,000

Russell Creek Shoshone WY 2,500,000

Clarion Wild and Scenic River Allegheny PA 1,300,000

Ashdown Gorge Dixie UT 1,414,000

Total Purchase 59,664,000

Acquisition Management 9,000,000

Critical Inholdings/Wilderness Protection 4,000,000

Cash Equalization 1,000,000

Total 73,664,000
Overview of the FY 2011 President’s Budget Page 39 of 40

Forest Legacy Program FY 2011 Project List

Final Rank State Project Name Panel Request

Administrative Funds 6,400,000

WY New State Start-up 500,000

1 ME West Grand Lake Community Forest 6,675,000

2 MT Clearwater 5,900,000

3 MI Crisp Point 5,175,000

4 KY Big Rivers Corridor 3,250,000

5 ID North Idaho Timberland Communities 3,850,000

6 TN North Cumberland Conservation Area 3,000,000

7 CO Ben Delatour Scout Ranch 4,000,000

8 NH Androscoggin Headwaters 4,100,000

9 MA Brushy Mountain 5,000,000

10 WI Chippewa Flowage Forest 2,500,000

11 FL Thomas Creek 3,500,000

12 VT Northern Green Mountains Linkage 2,300,000

13 NY Follensby Pond 3,500,000

14 CA Chalk Mountain Area 2,000,000

15 NM Vallecitos High Country 1,925,000

16 GA Ocmulgee WMA expansion 4,000,000

17 AR Maumelle Water Excellence 2,500,000

18 FSM Yela Forest Watershed 530,000

19 NV Castles-Bowers Mansion 500,000

20 PA Little Bushkill Headwaters Forest Reserve 2,500,000

21 NH Cardigan Highlands 1,350,000

Final Rank State Project Name Panel Request
Overview of the FY 2011 President’s Budget Page 40 of 40

22 IA Upper Iowa River Watershed 1,500,000

23 DE Chesapeake Headwaters 2,250,000

24 IN Discover Woods 850,000

25 UT Green Canyon 2,000,000

26 CT Scantic River Headwaters Project 2,230,000

27 WA Mt St Helens Forest 2,000,000

28 NC Campbell Creek Watershed 2,000,000

29 SD Blood Run 1,300,000

30 TX Longleaf Ridge Conservation Area 1,600,000

31 SC Savannah River Phase II 1,100,000

32 ME Katahdin Forest Expansion 3 - Gulf Hagas 1,500,000

33 CA Usal Redwood Forest 1,000,000

34 MI Thumb Lake Forest 1,100,000

35 AK Chugach State Park 1,000,000

36 MT Birch Creek Demonstration Forest 1,650,000

37 OR South Eugene Hills Phase II 1,075,000

38 AL Tallapoosa River Fall Line Hills 1,000,000

Total Funding $100,110,000
FY 2011 Budget Justification USDA Forest Service

Budget at a Glance 2-1

FY 2011 Forest Service Budget at a Glance

Appropriation

Budget Line Item

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Discretionary Funds

Forest & Rangeland Research

Annual Appropriations

Forest & Rangeland Research $296,380 $312,012 $3,042 -$10,700 $304,354 -3%

Wildland Fire & Fuels R&D $28,646 $23,605 $229 -$460 $23,374 -2%

Invasive Species R&D $35,464 $37,463 $366 -$1,298 $36,531 -3%

Recreation R&D $4,940 $5,177 $51 -$104 $5,124 -2%

Resource Management & Use $88,878 $100,762 $980 -$1,970 $99,772 -2%

Water, Air & Soil R&D $36,442 $36,136 $353 -$1,146 $35,343 -3%

Wildlife & Fish R&D $31,609 $30,467 $297 -$903 $29,861 -3%

Inventory & Monitoring R&D $9,631 $11,463 $766 $181 $12,410 2%

Forest Inventory & Analysis $60,770 $66,939 $0 -$5,000 $61,939 -7%

Annual Appropriations Total $296,380 $312,012 $3,042 -$10,700 $304,354 -3%

Forest & Rangeland Research Total $296,380 $312,012 $3,042 -$10,700 $304,354 -3%

State & Private Forestry

Annual Appropriations 0%

Forest Health Management - Federal Lands $54,110 $57,282 $683 -$1,800 $56,165 -3%

Forest Health Management - Cooperative Lands $46,292 $48,573 $90 -$2,750 $45,913 -6%

State Fire Assistance $35,000 $39,147 $110 -$4,000 $35,257 -10%

Volunteer Fire Assistance $6,000 $7,000 $0 $0 $7,000 0%

Forest Stewardship Program $27,000 $29,369 $147 $0 $29,516 0%

Forest Legacy Program $49,445 $75,960 $50 $24,100 $100,110 32%

Community Forest & Open Space Conservation $0 $500 $0 $500 $1,000 100%

Urban & Community Forestry $29,541 $30,377 $101 $1,950 $32,428 6%

Economic Action Programs $4,973 $5,000 $0 -$5,000 $0 -100%

Forest Resources Information & Analysis $5,000 $5,035 $33 $0 $5,068 0%

International Forestry $8,500 $9,818 $68 -$750 $9,136 -8%

Annual Appropriations Total $265,861 $308,061 $1,282 $12,250 $321,593 4%

Supplemental & Emergency Funding $0 $0 $0 $0 $0

State & Private Forestry Total $265,861 $308,061 $1,282 $12,250 $321,593 4%

(dollars in thousands)
FY 2011 Budget Justification USDA Forest Service

Budget at a Glance 2-2

FY 2011 Forest Service Budget at a Glance

Appropriation

Budget Line Item

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Discretionary Funds

National Forest System

Annual Appropriations

Integrated Resource Restoration $0 $0 $6,056 $687,716 $693,772 0%

Restoration & Management of Ecosystems $0 $0 $6,056 $597,716 $603,772 0%

Collaborative Forest Landscape Restoration Fund $0 $0 $0 $40,000 $40,000 0%

Priority Watersheds & Job Stabilization $0 $0 $0 $50,000 $50,000 0%

Land Management Planning $48,833 $45,917 $440 -$399 $45,958 -1%

Maintain Land Management Plans $26,723 $29,105 $297 -$458 $28,944 -2%

Create/Revise Land Management Plans $22,110 $16,812 $143 $59 $17,014 0%

Inventory & Monitoring $167,580 $170,502 $1,297 -$1,807 $169,992 -1%

Conduct Strategic Resource Inventories $78,095 $76,476 $598 $388 $77,462 1%

Conduct Land Management Plan Monitoring $63,795 $67,514 $524 $273 $68,311 0%

Conduct Land Management Plan Assessments $25,690 $26,512 $175 -$2,468 $24,219 -9%

Recreation, Heritage & Wilderness $277,635 $285,117 $3,035 $5,000 $293,152 2%

Manage Recreation Operations $162,342 $156,411 $1,596 $3,149 $161,156 2%

Administer Recreation Special Use Authorizations $40,432 $45,709 $511 $291 $46,511 1%

Manage Heritage Resources $29,893 $33,417 $350 $757 $34,524 2%

Manage Wilderness & Wild & Scenic Rivers $44,968 $49,580 $578 $803 $50,961 2%

Wildlife & Fisheries Habitat Management $139,385 $143,014 $0 -$143,014 $0 -100%

Manage Aquatic Habitat $50,655 $56,404 $0 -$56,404 $0 -100%

Manage Terrestrial Habitat $79,556 $78,002 $0 -$78,002 $0 -100%

Provide Wildlife Interpretation & Education $9,174 $8,608 $0 -$8,608 $0 -100%

Grazing Management $50,000 $50,714 $559 -$765 $50,508 -2%

Manage Grazing Allotments $26,086 $28,568 $273 -$4,156 $24,685 -15%

Prepare Grazing Allotment NEPA $23,914 $22,146 $286 $3,391 $25,823 15%

Forest Products $332,666 $336,722 $0 -$336,722 $0 -100%

Plan & Prepare Timber Sales $242,825 $250,415 $0 -$250,415 $0 -100%

Administer Timber Sales $89,841 $86,307 $0 -$86,307 $0 -100%

Vegetation & Watershed Management $180,437 $187,960 $0 -$187,960 $0 -100%

Improve Forest Vegetation $36,873 $37,298 $0 -$37,298 $0 -100%

Establish Forest Vegetation $37,363 $36,506 $0 -$36,506 $0 -100%

Manage Rangeland Vegetation $22,116 $24,697 $0 -$24,697 $0 -100%

Maintain & Improve Watershed Conditions $57,055 $62,273 $0 -$62,273 $0 -100%

Manage Noxious Weeds & Invasive Plants $22,245 $22,585 $0 -$22,585 $0 -100%

Manage Air Quality $4,785 $4,601 $0 -$4,601 $0 -100%

(dollars in thousands)
FY 2011 Budget Justification USDA Forest Service

Budget at a Glance 2-3

FY 2011 Forest Service Budget at a Glance

Appropriation

Budget Line Item

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Discretionary Funds

National Forest System

Annual Appropriations

Minerals & Geology Management $85,470 $87,240 $716 -$590 $87,366 -1%

Administer Minerals Operations $29,309 $30,329 $279 -$402 $30,206 -1%

Process Mineral Applications $22,046 $22,533 $208 -$313 $22,428 -1%

Manage Geologic Resources & Hazards $8,468 $7,941 $80 $567 $8,588 7%

AML Safety Risk Mitigated $6,272 $7,921 $78 $291 $8,290 4%

Manage Environmental Compliance $2,759 $2,041 $19 $33 $2,093 2%

Manage Environmental Restoration $16,616 $16,475 $52 -$766 $15,761 -5%

Landownership Management $93,299 $95,606 $951 -$1,234 $95,323 -1%

Adjust Land Ownership $14,106 $13,886 $93 -$1,221 $12,758 -9%

Protect Land Ownership Title $10,734 $11,553 $99 -$2,020 $9,632 -17%

Locate Land Boundaries $32,376 $33,477 $400 $2,353 $36,230 7%

Administer Land Use Authorizations $23,525 $22,534 $212 $107 $22,853 0%

Process Land Use Proposals $12,558 $14,156 $147 -$453 $13,850 -3%

Law Enforcement Operations $135,500 $145,047 $1,101 $0 $146,148 0%

Enforce Laws & Regulations $89,183 $95,756 $727 $0 $96,483 0%

Investigate Crime $46,317 $49,291 $374 $0 $49,665 0%

Valles Caldera National Preserve $4,000 $3,500 $0 $0 $3,500 0%

Rescission of Prior Year Unobligated Balances -$5,000 $0 $0 $0 $0 0%

Annual Appropriations Total $1,509,805 $1,551,339 $14,155 $20,225 $1,585,719 1%

Supplemental & Emergency Funding $0 $0 $0 $0 $0

National Forest System Total $1,509,805 $1,551,339 $14,155 $20,225 $1,585,719 1%

(dollars in thousands)
FY 2011 Budget Justification USDA Forest Service

Budget at a Glance 2-4

FY 2011 Forest Service Budget at a Glance

Appropriation

Budget Line Item

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Discretionary Funds

Capital Improvement & Maintenance

Annual Appropriations

Facilities $126,453 $135,010 $698 -$4,270 $131,438 -3%

Maintain Facilities $72,597 $86,134 $413 -$6,588 $79,959 -8%

Improve Facilities $53,856 $48,876 $285 $2,318 $51,479 5%

Roads $228,825 $236,521 $1,465 -$73,621 $164,365 -31%

Maintain Passenger Car Roads $120,701 $141,997 $1,175 -$10,673 $132,499 -8%

Maintain High Clearance & Closed Roads $37,627 $20,037 $249 $6,878 $27,164 34%

Decommission Roads $4,172 $4,851 $41 -$190 $4,702 -4%

Improve Roads $66,325 $69,636 $0 -$69,636 $0 -100%

Trails $81,015 $85,381 $980 -$3,300 $83,061 -4%

Maintain Trails $60,649 $63,846 $716 -$1,320 $63,242 -2%

Improve Trails $20,366 $21,535 $264 -$1,980 $19,819 -9%

Deferred Maintenance & Infrastructure Improvement $9,100 $9,141 $17 $0 $9,158 0%

Legacy Roads & Trails $50,000 $90,000 $371 -$40,000 $50,371 -44%

Annual Appropriations Total $495,393 $556,053 $3,531 -$121,191 $438,393 -22%

Supplemental & Emergency Funding $0 $0 $0 $0 $0

Supplemental & Emergency Funding - ARRA $650,000 $0 $0 $0 $0

Capital Improvement & Maintenance Total $1,145,393 $556,053 $3,531 -$121,191 $438,393 -22%

Land Acquisition

Annual Appropriations

Land Acquisition $49,775 $63,522 $80 $10,062 $73,664 16%

Land Acquisition Management $8,000 $8,000 $80 $920 $9,000 12%

Purchase Land $41,775 $55,522 $0 $9,142 $64,664 16%

Acquisition of Lands for National Forests Special Acts $1,050 $1,050 $0 $0 $1,050 0%

Acquisition of Lands to Complete Land Exchanges $41 $250 $0 $0 $250 0%

Annual Appropriations Total $50,866 $64,822 $80 $10,062 $74,964 16%

Land Acquisition Total $50,866 $64,822 $80 $10,062 $74,964 16%

(dollars in thousands)
FY 2011 Budget Justification USDA Forest Service

Budget at a Glance 2-5

FY 2011 Forest Service Budget at a Glance

Appropriation

Budget Line Item

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Discretionary Funds

Other Appropriations

Annual Appropriations

Range Betterment Fund $2,581 $3,600 $0 $0 $3,600 0%

Gifts, Donations, & Bequests for Research $50 $50 $0 $0 $50 0%

Mgt. of NF Lands for Subsistence Uses $5,000 $2,582 $24 $0 $2,606 0%

Annual Appropriations Total $7,631 $6,232 $24 $0 $6,256 0%

Other Appropriations Total $7,631 $6,232 $24 $0 $6,256 0%

Wildland Fire Management

Annual Appropriations

Preparedness $675,000 $675,000 $9,387 $323,839 $1,008,226 48%

Fire Operations - Suppression $993,947 $997,505 $3,834 -$406,339 $595,000 -41%

Hazardous Fuels $328,086 $340,285 $2,639 $6,523 $349,447 2%

Non-Wildland-Urban Hazardous Fuels $70,171 $88,764 $527 -$7,086 $82,205 -8%

Wildland-Urban Hazardous Fuels $257,915 $251,521 $2,112 $13,609 $267,242 5%

NFP Rehabilitation & Restoration $11,500 $11,600 $35 -$2,600 $9,035 -22%

NFP Research & Development $23,917 $23,917 $143 $0 $24,060 0%

Joint Fire Science Program $8,000 $8,000 $9 $0 $8,009 0%

NFP Forest Health Management - Federal Lands $17,252 $20,752 $2 -$6,312 $14,442 -30%

NFP Forest Health Management - Cooperative Lands $9,928 $11,428 $27 -$4,428 $7,027 -39%

NFP State Fire Assistance $55,000 $71,250 $104 -$21,250 $50,104 -30%

NFP Volunteer Fire Assistance $9,000 $9,000 $0 -$2,000 $7,000 -22%

Rescission of Prior Year Unobligated Balances $0 -$75,000 $0 $75,000 $0 0%

Collaborative Forest Landscape Restoration Fund $0 $10,000 $0 -$10,000 $0 -100%

Annual Appropriations Total $2,131,630 $2,103,737 $16,180 -$47,567 $2,072,350 -2%

Supplemental & Emergency Funding - Fire

Fire Operations - Suppression $200,000 $0 $0 $0 $0

Fire Operations - Other $0 $0 $0

Supplemental & Emergency Funding - Fire Total $200,000 $0 $0 $0 $0

Supplemental & Emergency Funding - ARRA $500,000 $0 $0

Wildland Fire Management Total $2,831,630 $2,103,737 $16,180 -$47,567 $2,072,350 -2%

(dollars in thousands)
FY 2011 Budget Justification USDA Forest Service

Budget at a Glance 2-6

FY 2011 Forest Service Budget at a Glance

Appropriation

Budget Line Item

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Discretionary Funds

FLAME Wildfire Suppression Reserve Fund

Annual Appropriations

FLAME Wildfire Suppression Reserve Fund $0 $413,000 -$122,000 $291,000 -30%

Annual Appropriations Total $0 $413,000 -$122,000 $291,000 -30%

FLAME Wildfire Suppression Reserve Fund Total $0 $413,000 -$122,000 $291,000 -30%

Presidential Wildland Fire Contingency Reserve

Annual Appropriations

Presidential Wildland Fire Contingency Reserve $0 $0 $282,000 $282,000 0%

Annual Appropriations Total $0 $0 $282,000 $282,000 0%

Presidential Wildland Fire Contingency Reserve Total $0 $0 $282,000 $282,000 0%

Discretionary Funds Total $6,107,566 $5,315,256 $38,294 $23,079 $5,376,629 0%

Permanent Funds $744,284 $742,491 $0 -$86,748 $655,743 -12%

Trust Funds $152,582 $164,950 $0 -$6,050 $158,900 -4%

 Grand Total, Forest Service $7,004,432 $6,222,697 $38,294 -$69,719 $6,191,272 -1%

(dollars in thousands)
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-1

USDA Forest Service

Annual Performance Report

Table of Contents

Introduction.................................................................................................................................. 3-2

Forest Service Mission............................................................................................................. 3-2

Forest Service Performance Management Framework............................................................ 3-2

High Priority Performance Goal Measure ............................................................................... 3-3

Crosswalk of Forest Service Goals and Objectives with USDA Strategic Goals.................... 3-5

Forest Service Strategic Plan Overview .................................................................................. 3-7

FY 2011 Budget Request by Forest Service Strategic Goal.................................................... 3-8

FY 2011 Full Time Equivalents by Strategic Goal.................................................................. 3-8

Results by Forest Service Strategic Plan Goal............................................................................. 3-9

Goal 1: Restore, sustain, and enhance the Nation’s forests and grasslands............................ 3-9

Goal 2: Provide and Sustain Benefits to the American People.............................................. 3-17

Goal 3: Conserve Open Space ............................................................................................... 3-21

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities.......................................... 3-25

Goal 5: Maintain Basic Management Capabilities of the Forest Service .............................. 3-29

Goal 6: Engage Urban America with Forest Service Programs ............................................ 3-32

Goal 7: Provide Science-Based Applications and Tools for Sustainable Natural Resources 

Management........................................................................................................................... 3-35

Corrective Action Plans for Measures with FY 2009 Variance from Targets for Strategic 

Objectives .................................................................................................................................. 3-37

External Audits and Reviews..................................................................................................... 3-39

Management Challenges............................................................................................................ 3-41

FY 2009 –FY 2011 Funding and FTEs by Strategic Goal......................................................... 3-43
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-2

Annual Performance Report

Introduction

This chapter presents the Forest Service’s accomplishments associated with the U.S. Department of 

Agriculture (USDA) strategic plan, Forest Service strategic plan, and serves as the agency’s Government 

Performance and Results Act Annual Performance Report for FY 2009. The discussion for each goal 

includes: 1) performance data for FY 2007 through FY 2009, 2) an assessment of those results, 3) 

corrective action plans where appropriate, and 4) implications for FY 2010 and FY 2011 performance 

targets. The Annual Performance Report is one of three reports issued by the Forest Service to report on 

financial and performance results. The other two reports include the Annual Financial Report issued in 

December 2009 and a Summary of Performance and Financial Information that will be published in 

February 2010. All three reports will be available on the Forest Service website at http://www.fs.fed.us/.

Forest Service Mission

The Forest Service mission is to “Sustain the health, diversity, and productivity of the Nation’s forests 

and grasslands to meet the needs of present and future generations.” 

The agency also plays a major role in three of four goals in the new USDA Strategic Plan: 

Goal 1: “Assist rural communities to create prosperity so they are self-sustaining, 

repopulating, and economically thriving”

Goal 2: “Ensure our national forests and private working lands are conserved, restored, and 

made more resilient to climate change, while enhancing our water resources” 

Goal 4: “Ensure that all of America’s children have access to safe, nutritious, and balanced 

meals”

Forest Service Performance Management Framework

Performance accountability is an integral part of Forest Service operating standards. The agency assigns 

accomplishment targets to Washington Office (WO) staff, regions, stations, and the Northeastern Area 

based on the agency’s strategic plan goals and objectives, and input from executive leaders as to on-theground capability. Each unit within the agency develops a program of work consisting of specific 

projects to realize objectives based on congressional direction, the strategic plan, resource management 

plans, and budget allocations. Project plans are reviewed and updated throughout the fiscal year to reflect 

changed conditions.

Accomplishment data is gathered at the national forest level, reported in a designated database, and 

summarized by region and agency level for use by internal and external customers. Accomplishments for 

key performance measures are used as part of the annual performance evaluations of the Regional 

Foresters and other Senior Executive Service members. 

Managers, supervisors, and project staff continually review the completeness and quality of the data at the 

ranger district, national forest, and regional levels. The Forest Service requires regional level line officers 

to certify that all appropriate procedures have been performed to ensure validity and reliability of key 

performance data, and to document data items that do not meet the standard. Reviews conducted by 

Washington Office staff ensure that appropriate procedures have been followed at during the year. Yearend accomplishment reports are analyzed and agency level corrective action plans are developed for 

unmet measures.
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High Priority Performance Goal Measure

Following Administration direction, all Government agencies have developed high priority performance 

goals. The Forest Service contributes to the following USDA high priority performance goal: 

“Accelerate the protection of clean, abundant water resources by implementing high impact 

targeted (HIT) practices on 3 million acres of national forest and private working lands in 

priority landscapes”

To focus efforts and monitor progress, the Forest Service will use the following measure related to the 

high priority performance goal:

HIT practices include:

• Sustainably managing national forest and grasslands to achieve healthier conditions, including 

establishing vegetation, enhancing habitat, improving soil and water resources, strategic use of timber 

sales, administering of grazing allotments in line with Forest Plans, and maintaining trails and roads 

to standard

• Implementing Forest Stewardship Plans to ensure sustainable management of nonindustrial private 

forest land

• Protecting environmentally important forests from conversion to other uses through the Forest Legacy 

and Land Acquisition programs

• Managing forest vegetation in a way that achieves fire objectives as additional benefits

There are a number of long-term and efficiency measures associated with the HIT practices, which the 

Forest Service will continue to use in evaluating progress toward the High Priority Performance Goal: 

Forest Legacy:

• Acres of environmentally important forests protected from conversion 

• Total Forest Legacy Program cost or expenditure per acre protected from conversion 

Invasive Species:

• Number of priority acres treated annually for invasive species or native pests

• Cost per acre treated to reduce risk

Land Acquisition:

• Number of acres acquired or donated

• Dollar cost or expenditure per acre purchased or donated

Wildland Fire:

• Total acres treated in wildland-urban interface (WUI) and non-WUI and also acres treated for other 

vegetation management activities that achieved fire objectives as a secondary benefit

• Acres moved to higher condition class per million dollars gross investment

Annual Output Measure

FY 2010

Target

FY 2011

Target

Acres with High Impact Targeted (HIT) practices applied 750,000 750,000
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National Forest Improvement and Maintenance:

• Miles of high clearance system roads receiving maintenance

• Miles of system trails maintained to standard

• Cost of capital improvement and maintenance per mile of highway legal vehicle road in good or fair 

condition

• Cost per trail mile maintained and improved to standard

Watershed Management:

• Acres of watershed improvement

• Acres of non-industrial private forest acres being managed sustainably, as defined by a current Forest 

Stewardship Plan

• Acres of terrestrial habitat enhanced

• Allotment acres administered to 100 percent of Forest Plan standards

• Acres of forest vegetation established

In addition to its contribution to the High Priority Performance Measure, the Forest Service plays a 

significant role in achieving relevant USDA Strategic Goals, as outlined in the following tables.
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Crosswalk of Forest Service Goals and Objectives with USDA Strategic Goals

USDA 

Strategic Goal

Forest Service 

Strategic Goal Forest Service Strategic Objective

Assist rural 

communities to 

create 

prosperity so 

they are selfsustaining, 

repopulating, 

and 

economically 

thriving

2: Provide and Sustain 

Benefits to the 

American People

2.1 Provide a reliable supply of forest products over time that 1) is 

consistent with achieving desired conditions on NFS lands and 2) 

helps maintain or create processing capacity & infrastructure in 

local communities

2.2 Provide a reliable supply of rangeland products over time that 

1) is consistent with achieving desired conditions on NFS lands 

and 2) helps support ranching in local communities

2.3 Help meet energy resource needs

2.4 Promote market-based conservation & stewardship of 

ecosystem services

4: Sustain and 

Enhance Outdoor 

Recreation 

Opportunities

4.1 Improve the quality & availability of outdoor recreation 

experiences

4.2 Secure legal entry to national forest lands and waters

4.3 Improve the management of off-highway vehicle use

6: Engage Urban 

America with Forest 

Service Programs

6.1 Promote conservation education to increase environmental 

literacy through partnerships with groups that benefit & educate 

urban populations

6.2 Improve the management of urban & community forests to 

provide a wide range of public benefits

Ensure our 

national forests 

and private 

working lands 

are conserved, 

restored, and 

made more 

resilient to 

climate change, 

while enhancing 

our water 

resources

1: Restore, Sustain, 

and Enhance the 

Nation's Forests and 

Grasslands

1.1 Reduce the risk to communities & natural resources from 

wildfire

1.2 Suppress wildfires efficiently & effectively

1.3 Build community capacity to suppress & reduce losses from 

wildfires

1.4 Reduce adverse impacts from invasive & native species, pests, 

and diseases

1.5 Restore & maintain healthy watersheds & diverse habitats

3: Conserve Open 

Space

3.1 Protect forest and grasslands from conversion to other uses

3.2 Help private landowners and communities maintain and 

manage their lands as sustainable forests and grasslands

5: Maintain Basic 

Management 

Capabilities of the 

Forest Service

5.1 Improve accountability through effective strategic & landmanagement planning and efficient use of data & technology in 

resource management

5.2 Improve the administration of national forest lands & facilities 

in support of the agency's mission

7: Provide Sciencebased Applications & 

Tools for Sustainable 

Natural Resources 

Management

7.1 Increase the use of applications & tools developed by Forest 

Service R&D stations and T&D centers
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Forest Service Contributions to USDA Strategic Goal Objectives and Measures1

Performance Measure

 Baseline FY2009 Actual FY 2010 Target FY 2011 Target FY 2015 Target

Assist rural communities to create prosperity so they are self-sustaining, repopulating, and economically thriving

Economic contribution of recreation use on National Forests and Grasslands (GDP 

contribution)

$13,800,000,000 N/A N/A N/A $14,400,000,000

Number of students who graduated from a USDA-run Job Corps Center 2,779 3,155 2,705 2,800 3,300

Number of communities with urban and community forestry programs resulting from Forest 

Service assistance

7,139 6,853 7,200 7,200 7,639

Ensure our national forests and private working lands are conserved, restored, and made more resilitent to climate change, while enhancing our water resources

Annual acres of public and private forest lands restored or enhanced 3,346,231 3,346,231 N/A N/A 3,700,000

Total acres of private forest land, farmland, grasslands, and wetlands protected from 

conversion through conservation easements and fee simple purchases

1,923,549 1,897,809 2,085,809 2,300,809 2,700,000

Percent of National Forests in compliance with a climate change adaptation and mitigation 

strategy

0% 0% N/A N/A 100%

Acres of National Forest system watersheds at or near natural condition 58,000,000 58,000,000 60,390,000 61,380,000 62,000,000

Number of communities with reduced risk from catastrophic wildfire 10,000 10,000 13,000 14,000 18,000

Cumulative number of acres in the National Forest System that are in a desired condition 

relative to fire regime

58,500,000 58,500,000 59,131,800 59,610,600 61,500,000

Percentage of acres treated in the wildland-urban interface (WUI) that have been identified 

in community wildfire protection plans or equivalent plans.

36.0% 41.0% 41.0% 75.0% 55.0%

 1 Measure 1.2.4: Out year targets have been adjusted since the Forest Service FY 2007 – 2012 Strategic Plan to reflect current trends.

 Measure 2.3.1: “Natural Condition” means that the watershed is unimpaired and stable.

 Measure 2.4.1: This is a joint performance measure with the Department of Interior

 Measure 2.4.2: Excluding Alaska, which does not have a consistent Fire Regime Condition Class data set at this time. A “desired condition” is defined as being within the natural (historical) range of 

 variability of vegetation characteristics; fuel composition; fire frequency, severity, and pattern; and other associated disturbances. Fire regime is a generalized term for wildland fire’s role within a 

 vegetative community in the absence of modern human mechanical intervention (but including the influence of aboriginal burning) as characterized by fire frequency, predictability, seasonality, 

 intensity, duration, and scale.
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Forest Service Strategic Plan Overview

This chapter is arranged according to the Forest Service Strategic Plan for FY 2007 – 2012, which 

identifies seven strategic goals consistent with the agency’s mission:

Goal 1: Restore, Sustain, and Enhance the Nation’s Forests and Grasslands

Goal 2: Provide and Sustain Benefits to the American People

Goal 3: Conserve Open Space

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities

Goal 5: Maintain Basic Management Capabilities of the Forest Service

Goal 6: Engage Urban America with Forest Service Programs

Goal 7: Provide Science-Based Applications and Tools for Sustainable Natural Resources Management

Each goal includes specific strategic objectives and strategic performance measures, with baselines and 

FY 2012 targets for each measure. The Strategic Plan can be found at: http://www.fs.fed.us/plan/

The Forest Service met or exceeded seventy percent of its strategic goal targets in 2009. Of those targets 

that it did not meet, the agency improved over last year’s accomplishment in half of the cases.

Goals are considered to be “met” if actual accomplishments are within 5 percent of the stated target for 

that year. Descriptions of and explanations for unmet targets for strategic measures from FY 2009 are 

summarized toward the end of this chapter. Included in the explanation for each performance measure is 

a discussion of any material inadequacies of the data, explanations for the variance, and the necessary 

corrective actions, if applicable.

Met/ 

Exceeded

70%

Improved

15%

Unmet

15%

Forest Service Strategic Plan Performance - 2009
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FY 2011 Budget Request by Forest Service Strategic Goal 

Each section corresponding to a strategic goal includes details of the FY 2011 budget request for that 

goal. Below is a summary of the overall budget request by Forest Service strategic goal.

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

Goal 1: Restore, Sustain and Enhance the Nation's Forests and Grasslands $4,620,334 $4,281,136 $4,358,799

Goal 2: Provide and Sustain Benefits to the American People $572,300 $398,907 $294,932

Goal 3: Conserve Open Space $164,652 $210,790 $237,506

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities $850,745 $694,552 $688,940

Goal 5: Maintain Basic Management Capabilities of the Forest Service $662,568 $473,238 $448,380

Goal 6: Engage Urban America with Forest Service Programs $34,818 $36,546 $38,646

Goal 7: Provide Science-Based Applications and Tools for Sustainable Natural Resources Management $99,015 $127,529 $124,069

Grand Total, Forest Service $7,004,432 $6,222,697 $6,191,272

FY 2011 Full Time Equivalents by Strategic Goal

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

Goal 1: Restore, Sustain and Enhance the Nation's Forests and Grasslands 20,822 22,719 22,623

Goal 2: Provide and Sustain Benefits to the American People 2,819 2,804 2,023

Goal 3: Conserve Open Space 401 399 384

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities 4,520 4,601 4,588

Goal 5: Maintain Basic Management Capabilities of the Forest Service 2,549 2,470 2,338

Goal 6: Engage Urban America with Forest Service Programs 80 85 85

Goal 7: Provide Science-Based Applications and Tools for Sustainable Natural Resources Management 674 816 819

Grand Total, Forest Service 31,865 33,894 32,860

Goal 1

70%

Goal 2

5%

Goal 3

4%

Goal 4

11%

Goal 5

7%

Goal 6

1%

Goal 7

2%

FY 2011 President's Budget
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Results by Forest Service Strategic Plan Goal

Goal 1: Restore, sustain, and enhance the Nation’s forests and grasslands

Key Outcome: Forests and grasslands with the capacity to maintain their health, productivity, 

diversity, and resistance to naturally severe disturbance.

Healthy forests and rangelands, and their watersheds and ecosystems, provide many benefits for current 

and future generations. Since its creation, the Forest Service has balanced land stewardship with meeting 

public desires for goods and services from National Forest System (NFS) lands. Despite past successes, 

challenges persist. Population growth and expanding urban centers raise demand for goods, services, and 

amenities from the Nation’s private and public forests and rangelands at the same time that natural 

disturbances and non-natural changes increase stress and risk of catastrophic wildfire for forest and 

rangeland ecosystems.

Disturbance is a natural process, which is often required to maintain or restore desired environmental 

conditions. However, the Forest Service and its partners are challenged to manage disturbances to sustain 

healthy ecosystems while avoiding adverse impacts to the goods and services provided to the public by 

these lands. Fire is a natural component of most forest ecosystems, but when fires occur in areas with 

uncharacteristically high fuel conditions, during periods of prolonged drought and high winds, or near 

populated areas, they threaten both communities and the environment. 

Invasive and native pests, including certain insects, pathogens, plants, and aquatic pests, pose a long-term 

risk to forest and rangeland health. Over-crowded forest stands and drought conditions have increased the 

extent and frequency of insect (i.e., mountain pine beetle and gypsy moth) and disease outbreaks. 

Forest Service efforts to restore and enhance ecosystem health also address the quantity and quality of 

water produced from public and private forests and rangelands, and improve terrestrial and aquatic habitat 

for wildlife and fish. The agency manages national forests and grasslands and supports State and private 

management of non-Federal lands in order to make the Nation’s wildland ecosystems more resilient and 

better able to respond to future climate change and other disturbances.
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FY 2011 Budget Request 

Goal 1: Restore, Sustain and Enhance the Nation's Forests and Grasslands

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

Discretionary Funds

Annual Appropriations

Forest & Rangeland Research $150,503 $140,907 $137,931

State & Private Forestry $141,402 $152,002 $144,335

National Forest System $631,687 $652,398 $750,353

Capital Improvement & Maintenance $121,953 $163,452 $87,533

Other Appropriations $5,000 $2,582 $2,606

Wildland Fire Management $2,131,630 $2,103,737 $2,072,350

FLAME Wildfire Suppression Reserve Fund $0 $413,000 $291,000

Presidential Wildland Fire Contingency Reserve $0 $0 $282,000

Supplemental & Emergency Funding $0 $0 $0

Supplemental & Emergency Funding - Fire $200,000 $0 $0

Supplemental & Emergency Funding - ARRA

Capital Improvement & Maintenance $40,000 $0 $0

Wildland Fire Management $500,000 $0 $0

Discretionary Funds Total $3,922,175 $3,628,078 $3,768,108

Permanent Funds $592,543 $552,235 $512,550

Trust Funds $105,616 $100,823 $78,141

Grand Total, Forest Service $4,620,334 $4,281,136 $4,358,799

Principle Programs to Achieve Goal 1

Some of the programs critical to maintaining forest and rangeland health, productivity, diversity, and 

resistance to disturbance are discussed below.

Wildland Fire Management represents the largest budgetary investment for achieving the desired 

outcomes of Goal 1 on NFS lands. Prior-year investments in fire management planning have been used to 

develop a full range of fire management tactics in response to naturally occurring fires. Such responses 

may include avoiding suppression expenditures where fires are burning within pre-determined conditions 

that will produce desired reductions in hazardous fuels and restore fire-adapted ecosystem conditions—

without presenting significant risk to communities and the environment. Hazardous Fuel management 

directly reduces the risk of unnaturally severe fire to communities and resources while producing 

integrated benefits for restoring fire-adapted ecosystems, enhancing wildlife habitat, and increasing forest 

health and watershed quality. State and Volunteer Fire Assistance programs also contribute to Goal 1 

outcomes.

Under its Forest Health programs for Federal and cooperative lands, the Forest Service’s State and Private 

Forestry (S&PF) Deputy Chief area addresses monitoring, identification, survey, and control efforts for 

pests on a landscape basis. 

Wildland Fire and Fuels Research and Development (Fire R&D) provides managers and policymakers 

essential knowledge and tools for making cost-effective and environmentally-sound fire management 

decisions. Products from Fire R&D ensure that the best science is available to sustain and enhance 
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resource values and public benefits and to minimize negative impacts of fire and its interactions with 

other disturbances on natural resources, water and air quality, and society. 

The Integrated Resource Restoration program is the foundation for the watershed, fish and wildlife, and 

forest restoration and enhancement activities on NFS lands. Restoration and maintenance of sustainable 

landscapes and watersheds involves a holistic approach and includes actions to restore or sustain water 

quality and watershed processes; soil condition, stability and productivity; vegetative composition and 

condition; air quality; fish and wildlife habitat and populations; and aquatic ecosystems connectivity. The 

program directly funds watershed-scale restoration projects and leverages accomplishment of additional 

restoration objectives through program integration and partnerships. Management priority for the 

program is to focus activities on targeted watersheds with identified high priority restoration needs and 

opportunities. The objective is to move these watersheds toward an improved watershed condition class 

or prevent a decline in existing condition class. These investments will help sustain and restore the core 

components of functioning ecosystems, enhance watershed resiliency in the face of climate change, and 

help meet the increasing demand for water resources.

Goal 1 – Key Performance Measure Assessment for Wildland Fire Management

Objective 1.1 Reduce the risk to communities and natural resources from wildfire2

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

1.1.a. Number and percentage of acres 

treated to restore fire-adapted 

ecosystems

(1) Moved toward desired 

conditions

Number (acres) 991,000 970,641 699,062 1,107,100 799,215 72% 1,180,000 960,000 1,600,000

Percentage 39% 32% 23% 42% 27% 64% 49% 40% 40%

(2) Maintained in desired 

conditions

Number (acres) 830,000 1,022,144 986,507 1,054,000 1,146,720 109% 1,128,000 1,200,000 2,000,000

Percentage 33.0% 33.0% 32.0% 40.0% 38.0% N/A 47.0% 50.0% 50.0%

1.1.b. Number of acres brought into 

stewardship contracts 

 57,500 77,676 65,890 107,000 88,304 83% 121,000 135,000 150,000

Objective 1.2 Suppress wildfires efficiently and effectively

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

1.2.a Percentage of fires not 

contained in initial attack 

that exceed a stratified cost 

index

24.0% 22.0% 24.3% 20.0% 22.0% 91% 19.0% 18.0% 14.0%

 2 Measure 1.1a(1) is calculated using change in condition class. In FY 2006, the information was not available for 

all vegetation treatments, so a ratio was applied to attain these baseline numbers. In FY 2007, data became available 

for all treatments. Improvements in data and calculation methodology required that the FY 2007 numbers be 

updated in FY 2008.
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Objective 1.3 Build community capacity to suppress and reduce losses from wildfires

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

1.3.a Percentage of acres treated 

in the wildland-urban 

interface that have been 

identified in community 

wildfire protection plans or 

equivalent plans.

17.0% 24.7% 36.0% 28.0% 41.0% 146% 41.0% 75.0% 50.0%

Goal 1 - FY 2009 Results Summary and Assessment for Wildland Fire Management 

While the agency exceeded fuel reduction results planned for all acres treated to restore fire-adapted 

ecosystems, acres moved toward desired conditions were below the results planned. A variety of factors 

influence our ability to meet these goals, including weather, resource availability, the number of 

treatments required, and data projection errors. Also, it often takes multiple treatments to move an area 

toward its desired condition and it may take repeated entries over time to maintain an area in desired 

condition. In addition, numerous types of projects contribute towards achievement of treatment goals, not 

all of which are specifically designed to change condition class, though they achieve their project goals. 

Lastly, the agency continues to increase its focus on treating more strategic acres, most of which are in 

more costly Wildland Urban Interface areas. 

The Forest Service has invested significant time and resources in containing wildland-fire costs since 

2006; however the agency did not meet the target for those fires not contained in initial attack that exceed 

a stratified cost index. This measure was in its infancy in 2006 when baselines were established, and 

improvements continue to be made. Rising costs, such as fuel and aviation, contribute to increased 

expenditures, not all of which can be offset by cost management actions. 

As discussed below, a number of analyses have helped the Forest Service to continue to improve this 

program.

Aircraft Replacement

In late FY 2009 the Office of Inspector General (OIG) issued a report on the agency’s plans to modernize 

its firefighting aircraft, particularly its air tanker fleet. This report contained nine recommendations; the 

Forest Service has completed actions on one and is taking actions on the other eight.

Cost Management 

Following an analysis of 2008 wildland fire suppression costs, the Secretary’s Independent Panel 

unanimously agreed that the Forest Service exercised fiscal diligence and implemented many measures to 

improve cost-effectiveness. The Panel’s 2009 report yielded eight recommendations regarding strategic 

thinking, risk-informed management, major cost components, the agency’s safety culture, incentives, the 

stratified cost index, and the review/oversight process. The report also highlighted five emerging issues –

the implications of climate change and rural development, the use of decision-support tools, managing 

firefighting in a land management agency, the significance of post-containment expenditures, and 

guidelines for cost sharing. The Forest Service has responded to all recommendations, incorporated these 

efforts into strategic documents and 2009 programs of work, and will continue to focus on them in 2010.

 
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Fire Program Analysis (FPA) 

The Government Accountability Office (GAO) report titled, Fire Management: Interagency Budget Tool 

Needs Further Development to Fully Meet Key Objectives, found that FPA showed promise in achieving 

some key objectives and fell short with respect to others. The Forest Service is working jointly with the 

Department of the Interior to respond to GAO’s recommendations.

Wildland Fire Capping Report

GAO conducted a review of the progress the Federal wildland fire agencies have made in managing 

wildland fire over the past several years. This September 2009 report, entitled Federal Agencies Have 

Taken Important Steps Forward, but Additional, Strategic Action is Needed to Capitalize on Those Steps 

found that the agencies have improved their understanding of wildland fire’s ecological role on the 

landscape and have taken important steps toward enhancing their ability to protect communities and 

resources cost-effectively. The report also found that the agencies have made improvements that lay 

important groundwork for enhancing their response to wildland fire. Despite these improvements, GAO 

also pointed to key actions they had previously recommended that they believe will substantially improve 

the agencies’ management of wildland fire if completed. This report contained no new recommendations, 

but the agencies agreed with the findings and the Forest Service will continue to work jointly with its 

partners to make wildland fire management more effective. 

Implications for FY 2010 and FY 2011 

The agency will continue to emphasize treating more strategic acres, most of which are in more costly 

Wildland-Urban Interface areas. This shift in focus to these priority acres means that fewer acres overall 

will be treated and fewer will change condition class. The stratified cost index measure will continue to be 

refined in the future and targets will be adjusted accordingly. In addition, due to the recent change in 

implementation of the Federal Wildland Fire Management Policy, it will be appropriate to explore other 

options for measures in the fire suppression objective, including accounting for the number of acres 

burned that achieved resource benefits. This goal continues a major effort to effectively address the 

wildfire situation in an efficient, integrated, and comprehensive manner. Critical emphasis to continue 

agency efforts on these objectives will be maintained in FY 2010 and FY 2011. Targets will continue to 

be achieved by working in collaboration with Federal and non-Federal partners and by working across 

agency programs. 

Means and Strategies for Success 

The detailed program budget justification identifies the operations and capital investments required to 

continue efforts on these objectives. In particular, the following major areas of emphasis will be 

addressed:

• Protection of high priority values at risk, especially human life and property. This directly relates 

to the measure “Percentage of acres treated in the Wildland Urban Interface (WUI) that have been 

identified in community wildfire protection plans (CWPP) or equivalent plans.”

• Integrated management of high priority landscapes to move toward desired conditions. This 

directly relates to the measure “Number and percentage of acres treated to restore fire-adapted 

ecosystems;” however, the emphasis will be on meeting this objective in conjunction with other 

resource objectives from other program areas.
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Goal 1 – Key Performance Measure Assessment for Invasive/Native Species

Objective 1.4 Reduce adverse impacts from invasive and native species, pests, and diseases.

3

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

1.4.a Percentage of priority acres restored and/or protected 

from invasive species on Federal and Cooperative 

program lands

NFS 90.0% 75.8% 80.8% 90.0% 81.5% 91% 90.0% 90.0% 90.0%

S&PF 90.0% 19.0% 28.4% 20.0% 26.2% 131% 20.0% N/A 90.0%

Goal 1 - FY 2009 Results Summary and Assessment for Invasive/Native Species 

The Forest Service met one of its targets for the strategic plan measures and continues to trend toward 

meeting the strategic plan goal.

The Forest Service focuses invasive species program implementation on outcome-based activities 

designed to effectively reduce the impact of invasive species on priority Federal and non-Federal lands. 

Treatments are prioritized based on risk, treatment efficacy and cost. Performance measures track both 

the quantity and effectiveness of treatments; the development, delivery and use of tools; and customer 

satisfaction with tools produced. The agency is also implementing an improved system of tabular and 

spatial record keeping for invasive species management projects.

These outcome-based performance measures have been instrumental in helping the agency better 

determine program success and to focus funding where treatments are most successful. National Forest 

System field units have been tracking and reporting these measures for the past three years. Budget 

allocation criteria incorporate previous year performance success to reward good performance and 

prioritize effective treatments. The findings of the recent audit by USDA – Office of Inspector General 

(OIG) are expected to provide additional opportunities and recommendations for continued improvement 

in the program. 

Implications for FY 2010 and FY 2011 

As the agency shifts emphasis to increased treatment effectiveness (including increased monitoring), and 

to focusing treatments on watersheds targeted for integrated resource restoration, unit costs may increase, 

resulting in corresponding adjustments in targets and accomplishments. Through added emphasis on 

treatment efficacy, the agency expects to eradicate new infestations more effectively before they establish 

a strong foothold, as well as to control established infestations more effectively.

Means and Strategies for Success 

Forest Service invasive species program actions are currently meeting or exceeding projected 

performance expectations and are resulting in greater effectiveness against invasive species across the 

National Forest System and other Federal and cooperative lands. The program will continue to 

implement strategic actions, prioritize treatments, increase integration of activities across program areas, 

and address the full spectrum of aquatic and terrestrial invasive species to improve performance. 

Treatment of invasive species will be a critical element in implementing integrated ecological restoration 

projects on priority landscapes. Implementation of an “all-lands” approach to ecosystem restoration in 

 3 S&PF accomplishments are not cumulative and reflect meeting 100% of a 5-year (2007-2012) target of nearly 4 

million acres.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-15

cooperation with the NRCS and other partners and property owners will help ensure the effectiveness of 

invasive species treatments across ownership and jurisdictional boundaries.

Goal 1 – Key Performance Measure Assessment for Healthy Watersheds and Diverse Habitats

Objective 1.5 Restore and maintain healthy watersheds and diverse habitats.

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

1.5.a Percentage of watershed in class 1 condition 30% 30% 30% 30% 30% 101% 30% 31% 32%

1.5.b Acres and miles of terrestrial and aquatic habitat 

restored consistent with forest plan direction:

Acres of terrestrial habitat restored 642,000 273,562 1,962,962 1,400,000 2,153,749 154% 1,607,646 1,500,000 903,358

Miles of stream habitat restored 4,600 1,542 2,346 2,500 3,498 140% 2,600 2,900 6,474

Acres of lake habitat restored 18,000 13,002 18,290 18,000 23,570 131% 19,060 20,000 25,328

1.5.c Percentage of acres needing reforestation or timber 

stand improvement that were treated

13% 14% 15% 16% 18% 113% 17% 18% 20%

Goal 1 - FY 2009 Results Summary and Assessment for Healthy Watersheds and Diverse Habitats

The Forest Service met or exceeded all targets for this goal. The fisheries, wildlife, and watershed 

accomplishments were achieved, in large part from the integration with other agency programs, such as 

vegetation management and the capitol investment program. Other targets were accomplished through 

ongoing and new collaborations and partnerships with other agencies and conservation organizations. The 

magnitude of partner contributions and what can be accomplished on the ground are expected to continue. 

However, accomplishments may be hindered over the next couple of years by financial challenges that 

some of our partners anticipate. Integration with resource areas such as vegetation management and 

engineering also played an important role in achieving these targets and this is expected to continue. 

Integration with other resource areas enhances accomplishments as the agency becomes more skilled at 

developing projects that benefit multiple resources. Since FY 2008 the agency has used a unified 

accomplishment business rule which allows for benefits of direct actions and integrated results from other 

vegetative treatments to count as accomplishments when appropriate. The agency continues to refine the 

performance measures and accomplishment reporting process for the watershed, fisheries and wildlife 

habitat programs. As the agency becomes more adept at determining a more accurate unified target there 

will be less variation with accomplishments reported.

Implications for FY 2010 and FY 2011 

Potential reductions in partner contributions will be offset by increases in integrated accomplishments and 

through burned areas restoration efforts. While many targets will be accomplished through integrated 

efforts, these accomplishments sometimes do not necessarily focus within the highest strategic priorities 

for fish and wildlife resources. Therefore, it will be important to continue to prioritize core work with 

appropriated fish and wildlife funds so that the highest priority conservation actions are achieved.

Climate change effects on at-risk species and locality considerations may play a greater role in the 

implementation of fisheries and wildlife management activities in FY 2011. 

Means and Strategies for Success 

The National Fish Habitat Action Plan, a multi agency/multi-conservation group effort, will identify the 

highest priority aquatic restoration areas. The action plan will assure aquatic program funds are focused 

in priority areas and stimulate efforts to have other resource areas work towards mutually beneficial goals 

in these watersheds. Work planning will identify the “ecological significance” of accomplishments – a 
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-16

key concern for maintaining the continued support of partners, for both aquatic and terrestrial 

conservation achievements. 

Mixing and pooling program funds within Goal 1 increases the integrated investment, and results in 

greater overall benefits for watershed health, and fish and wildlife habitat. An increased emphasis on 

National Forest System lands as important refugia for rare species will benefit Threatened, Endangered, 

and Sensitive (TES) species program accomplishments. 

The agency will continue to expand reforestation capability though expansion of nursery stock 

production. This multi-year expansion effort was initiated using emergency supplemental funds for 

burned area restoration authorized late in fiscal years 2007 and 2008. Reforestation accomplishments 

associated with this funding are projected to continue through FY 2010 and 2011, as nursery stock 

becomes available for planting. Additional funds targeted to mitigate the effects of climate change 

through reforestation are included in the FY 2011 Integrated Resource Restoration program to continue 

this expanded effort.

The Forest Service is responding to recommendations from a recent program assessment by developing 

new policy, protocols, and tools to improve the Watershed Program’s delivery and effectiveness. In 

response to the assessment, the Forest Service has also developed aquatic inventory and monitoring 

protocols for NFS lands and GIS-based tools to help States identify and prioritize critical forest areas on 

non-Federal lands. Through these applications and others, NFS and State and Private Forests (S&PF) are 

exploring meaningful ways to measure effectiveness of programs pertaining to watershed improvement.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-17

Goal 2: Provide and Sustain Benefits to the American People

Key Outcome: Forests and grasslands with sufficient long-term multiple socioeconomic benefits to 

meet the needs of society.

This Strategic Goal focuses on sustaining the productivity of the Nation’s forests and grasslands to meet 

the needs of present and future generations. These lands contain abundant natural resources and 

opportunities to help meet the demands and needs of the American people. Sustainable management of 

these resources ensures that the availability of goods and services and land productivity is maintained for 

both current and future generations.

FY 2011 Budget Request

Goal 2: Provide and Sustain Benefits to the American People

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

Discretionary Funds

Annual Appropriations

Forest & Rangeland Research $38,400 $35,506 $35,027

State & Private Forestry $4,973 $5,000 $0

National Forest System $224,819 $227,961 $163,597

Capital Improvement & Maintenance $69,353 $72,322 $42,250

Other Appropriations $2,581 $3,600 $3,600

Supplemental & Emergency Funding - ARRA

Capital Improvement & Maintenance $190,000 $0 $0

Discretionary Funds Total $530,126 $344,389 $244,474

Permanent Funds $20,048 $29,565 $29,225

Trust Funds $22,126 $24,953 $21,233

Grand Total, Forest Service $572,300 $398,907 $294,932

Principle Programs to Achieve Goal 2

The Forest Service actively manages forest vegetation through the Integrated Resource Restoration

program to meet ecosystem and watershed restoration objectives, and renewable forest products are 

produced as an outcome of these treatments. Active vegetation management also serves as an important 

tool for meeting objectives such as wildlife habitat restoration, while optimizing carbon sequestration 

opportunities to mitigate climate change.

Forest Service administration of over 8,000 grazing allotments provides a sustainable supply of forage for 

livestock and wildlife, economic support for rural communities, and maintenance of open space and 

habitat connectivity across national forest and the associated private lands used for livestock production. 

The Minerals & Geology program ensures that minerals operations provide adequate protection of surface 

resources and meet resource objectives of the Energy Policy Act of 2005. 
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-18

To help increase the Nation’s supply of renewable energy, the Forest Service will continue to implement 

the agency’s Woody Biomass Utilization Strategy, engage in hydropower licensing, wind energy 

development and geothermal operations on NFS lands.

Forest Service Research and Development provides science, management, and technology services to 

forest and rangeland owners, managers, policy makers, scientists, and the public so they can manage and 

use forest and rangeland resources to improve the standard of living and quality of life for current and 

future generations.

Other programs, such as Landownership Management and the Capital Improvement and Maintenance 

programs, provide necessary infrastructure and management support to enable the Forest Service to 

supply goods and services to the American public, while helping meet critical resource needs. 

Goal 2 – Key Performance Measure Assessment

Objective 2.1 Provide a reliable supply of forest products over time that is consistent with achieving 

desired conditions on NFS lands and helps maintain or create processing capacity and 

infrastructure in local communities. 4

Objective 2.2 Provide a reliable supply of rangeland products over time that is consistent with 

achieving desired conditions on NFS lands and helps support ranching in local 

communities.

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

2.2.a Acres of national forests 

and grasslands under 

grazing permit that are 

sustainably managed for 

all rangeland products

81,560,000 90,197,781 79,472,798 81,560,000 79,097,281 97% 81,560,000 81,560,000 81,560,000

 4 Measure 2.1.a: 1 CCF = 100 cubic feet harvested; The 2011 target includes only includes volume generated 

through salvage sales and treatments using regional K-V funds. Unknown additional volume will be generated 

through integrated restoration treatments; Actual accomplishments will depend on volume generated as an outcome 

of integrated restoration treatments, especially those using stewardship contracts and agreements as a cost effect 

means to implement treatments. 

Measure 2.1.b: The initial collection of data for this performance measure commenced at the beginning of 

FY2007. 
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-19

Objective 2.3 Help meet energy resource needs.

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

2.3.a Percentage of land Special 

Use Permit applications 

for energy-related facilities 

that are completed within 

prescribed timeframes

50% 45% 100% 60% 100% 167% 95% 100% 50%

2.3.b Percentage of energymineral applications that 

are processed within 

prescribed timeframes

45% 11% 8% 50% 8% 16% 50% 50% 55%

Objective 2.4 Promote market-based conservation and stewardship of ecosystem services.

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

2.4.a Number of States that have 

agreements with the Forest 

Service to help private 

forest landowners market 

ecosystem services

1 6 12 N/A 17 0% 19 21 14

Goal 2 - FY 2009 Results Summary and Assessment 

The Forest Service met four of the five targets set for this goal. The agency did not meet the planned 

level of forest products harvest due to the continued effects of the economic downturn and associated 

declines in the forest products market. This resulted in about 770,000 CCF (about 400 MMBF) of sale 

offering that received no bid. 

The increase in availability of woody biomass was generated in large part through fuel hazard reduction 

projects funded with ARRA funds. Demand for, and utilization of, this resource continues to lag behind 

the availability, due to the need for development and refinement of the technology and infrastructure to 

effectively utilize available woody biomass for bio-energy production 

Pending litigation and court decisions continue to affect the performance of the Minerals and Geology 

program. The majority of energy mineral applications submitted to the Forest Service cannot be 

completely processed until legal and policy matters are resolved. The ability to complete an 

environmental analysis for the energy mineral proposal is indirectly affected by pending litigation and 

court decisions such as contradictory Appellate court decisions regarding “roadless” policy and pending 

litigation regarding use of categorical exclusions. For example, a proposal to develop energy-minerals 

within a roadless area would be problematic. The agency continues to process energy-mineral proposals 

but cannot issue final decisions or move to completion until these legal issues have been resolved. No 

changes are anticipated at this time.

Implications for FY 2010 and FY 2011

Market conditions for forest products are expected to trend upwards in FY 2010 and through 2011, 

resulting in part from the economic stimulus provided by ARRA funded projects as well as from 

recovering housing markets. Increases in harvest levels are expected in response to these conditions, and 

as contracts that were extended during the economic downturn approach their termination dates. Demand 

for excess woody biomass is also expected to trend upwards due both to improved market conditions and 
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-20

as infrastructure and enhanced technology for the economically viable utilization of this available 

resource come on line.

Organizational changes in the Minerals program, initiated in FY 2010, will refocus agency oversight and 

lead to more effective program delivery. Projected outputs may need to be reassessed, based upon the 

outcome of current litigation. 

Means and Strategies for Success

The agency will continue to shift the emphasis for the production of forest products to being an outcome 

of meeting vegetation management, habitat management, and ecosystem restoration objectives. 

Integrated Resource Restoration program funds will be instrumental in implementing the projects 

identified through restoration planning on priority landscapes and other landscape scale ecosystem 

restoration efforts. 

Increasing the recognition and acceptance that utilization of excess woody biomass as a source of bioenergy will be critical to successfully expanding opportunities to meet forest and habitat health objectives. 

Explaining to the public and lawmakers the feasibility and effectiveness of utilizing this available 

resource generated by forest and ecosystem restoration projects while meeting long-term carbon 

sequestration and other climate change mitigation objectives will be essential steps in building this 

support. Demonstrating the feasibility of providing a sustainable supply of woody biomass to support the 

development of new technology and infrastructure will also be essential to gaining support for this 

opportunity.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-21

Goal 3: Conserve Open Space

Key Outcome: Maintain the environmental, social, and economic benefits of forests and grasslands 

by reducing and mitigating their conversion to other uses.

Undeveloped forests and grasslands, including working farms, ranches, and timber lands, help protect 

water quality, conserve native wildlife, and provide renewable timber and non-timber products, places to 

recreate, and scenic beauty. Conservation of these open spaces is essential to maintain the multitude of 

public benefits, ecosystem services, and products we all need and enjoy. Cooperation across boundaries, 

including Federal, State, private, and tribal lands, is essential to address large-scale conservation issues 

such as adaptation to climate change, conservation of water resources and drinking water supply, 

reduction of wildfire risk, and protection of at-risk species while providing for the creation of green jobs.

Under this goal, the Forest Service works with States and private landowners to conserve environmentally 

important forests, ensuring their value and use for current and future generations. The agency also 

provides cutting edge technology to identify critical private forest landscape areas where conservation 

threats and opportunities converge. The agency and State Foresters are working to target planning and 

technical assistance where it will maximize ecosystem service returns for both the public and individual 

landowners. 

Land acquisition and exchange programs conserve the integrity of undeveloped lands and prevent their 

conversion to incompatible uses. The Forest Service acquires lands, waters, and related interests through 

purchase, donation, or exchange within the NFS for such purposes as outdoor recreation, wildlife habitat 

conservation, water quality, invasive species control, fire suppression, climate change mitigation, 

watershed protection and enhancement, and resource management. 

The Forest Service’s grazing-permit program helps assure the long term maintenance of open space and 

habitat connectivity provided by private ranch lands by linking national forest and grassland grazing 

authorizations to these privately owned lands.

FY 2010 Budget Request 

Goal 3: Conserve Open Space

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

Discretionary Funds

Annual Appropriations

Forest & Rangeland Research $2,145 $3,332 $3,235

State & Private Forestry $76,445 $105,829 $130,626

National Forest System $33,061 $34,157 $26,181

Land Acquisition $50,866 $64,822 $74,964

Discretionary Funds Total $162,517 $208,140 $235,006

Trust Funds $2,135 $2,650 $2,500

Grand Total, Forest Service $164,652 $210,790 $237,506
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-22

Principal Programs to Achieve Goal 3

Forest Service programs that contribute toward conservation of open space involve Research & 

Development, National Forest System, and State & Private Forestry programs.

The Forest Inventory and Analysis (FIA) program tracks a nationwide system of forest inventory plots in 

a statistically sound lands inventory matrix. This data provides detailed information on stand 

characteristics and complements the more broad-based Natural Resource Inventory carried out on nonFederal lands by the Natural Resources Conservation Service.

The Landownership Management and Land Acquisition Programs support land acquisitions through 

purchase, donation, and exchange to improve public access for outdoor recreation, watershed protection, 

implementation of priority vegetation management, conservation of the integrity of undeveloped lands, 

and habitat quality. Private land conservation organizations work closely with Land Acquisition 

Programs to secure the purchase of critical open space landscapes in advance of Federal appropriations. 

These groups assume much of the cost associated with the acquisition of the lands and often transfer them 

to the Forest Service for less than their appraised value, providing public savings. The Land Acquisition 

Program presents proposed acquisition projects to Congress annually based on a nationwide evaluation of 

current purchase opportunities. The primary identification criteria are recreational opportunity and use, 

along with preservation of open space. 

The Forest Legacy Program (FLP) is administered by the Forest Service in cooperation with state partners 

to protect environmentally important forest areas that are threatened by conversion to development and 

other non-forest uses. Land trusts and other conservation organizations play a critical role in identifying 

and completing projects. FLP projects are selected through a two-step nationally competitive process, 

and focus on the conservation of working forests – those that provide forest products, water, fish and 

wildlife habitat, and recreational opportunities. 

The Forest Stewardship Program works through State agency and other partners to sustain and improve 

our Nation’s private forest landscapes. The program develops and delivers appropriate technical and 

planning assistance to enable active, informed, long-term forest management. Forest Stewardship 

management plans provide landowners with practical guidance for achieving their own unique objectives 

in a way that also maximizes public goods and services provided by forests, such as clean drinking water, 

clean air, carbon sequestration, wood fiber, recreation, and scenic landscapes. Landowners who 

implement Forest Stewardship Management Plans are in a much better position to participate in 

certification programs and access emerging markets, such as those for ecosystem services and 

carbon credits. 
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-23

Goal 3 – Key Performance Measure Assessment for Conserve Open Space

Objective 3.1 Protect forests and grasslands from conversion to other uses.5

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

3.1.a. Acres of environmentally important forests and 

grasslands protected from conversion (number of 

acres added annually)

Annual 0 88,091 194,987 104,000 176,471 170% 188,000 215,000 N/A

Cumulative 1,360,000 1,448,091 1,643,078 1,747,078 1,897,809 109% 2,085,809 2,300,809 2,000,000

Objective 3.2 Help private landowners and communities maintain and manage their land as 

sustainable forests and grasslands.6

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

3.2.a. Acres of nonindustrial private forest land that are 

being managed sustainably under forest stewardship 

management plans. 

Annual 1,760,000 1,715,206 1,888,904 2,000,000 2,076,447 104% 2,000,000 2,250,000 2,000,000

Cumulative 15,133,689 16,848,895 18,737,799 20,500,000 18,582,449 91% 22,000,000 23,500,000 25,000,000

Goal 3 - FY 2009 Results Summary and Assessment 

While the Forest Service exceeded its target for protecting land from conversion to other uses, it fell short 

of its forest stewardship objective under this goal. 

The agency accomplished less than its land adjustment target. This was primarily due to a delay in 

completing the appraisal for a State of Montana, Department of Natural Resources and Conservation 

(DNRC), phased land exchange project on the Lolo National Forest, consisting of 12,000 acres. The 

Forest is currently on track to complete the entire exchange in FY 2010 (both phases) consisting of 

24,000 acres.

Implications for FY 2010 and FY 2011 

The Forest Service is on track to meet its 2012 strategic plan objective to protect forests and grasslands 

from conversion to other uses given the FY 2010 and FY 2011 targets under 3.1. It is also likely that the 

targets for measure 3.2 will be met as states continue to focus efforts in high priority program areas. This 

will depend to some extent on program funding levels.

Means and Strategies for Success

Core programs and initiatives that directly support this goal are Research and Development, Ecosystem 

Services, Community Forest and Open Space Conservation Program (2010 new program), Forest Legacy 

Program , Forest Stewardship Program, and Land and Realty Management, which includes Lands 

Adjustment (NFLM, land exchanges, land interchanges, land donations) and Land Purchase activities 

(LALW). 

 5 Measure 3.1.a is reported annually, but the baseline and 2012 targets are cumulative. Annual numbers represent 

reported accomplishments at the end of the fiscal year. Cumulative numbers represent accomplishments through the 

end of the fiscal year plus adjustments made for late-arriving data from the States, which may result in a 

mathematical difference between the two representations.

6 Includes acres managed under current forest stewardship management plans only; as plans expire they are not 

always renewed, resulting in a slight drop in the cumulative number for this measure from 2008 to 2009.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-24

Additional contributing programs include Urban & Community Forestry, Land Management Planning, 

Tribal Relations, Grazing Management, Woody Biomass Utilization and Energy, Recreation, Heritage 

and Wilderness, Integrated Resource Restoration, Forest Health, Conservation Education, and 

Cooperative Fire.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-25

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities

Key Outcome: A variety of high-quality outdoor recreational opportunities on the Nation’s forests 

and grasslands are available to the public.

The Forest Service is challenged with sustaining adequate high-quality outdoor recreational experiences 

to meet the Nation’s needs while maintaining the ecological integrity of national forests and grasslands. 

Between FY 2006 and FY 2008 the agency experienced an average of 178 million visits on national 

forests. America’s population is projected to increase by nearly 50 percent by the middle of this century. 

Increasing population demands and declining public access to privately-owned forestland place extensive 

pressure on public lands to provide recreational opportunities.

The Forest Service explores and implements scientifically verified management solutions in order to 

support recreation needs without incurring adverse resource impacts. Agency research provides new 

technologies, methods, and models to address current problems. Researchers also examine anticipated 

future recreation management problems, opportunities, and needs, and apply social science research to 

analyze the changing public perceptions of the value and importance of outdoor recreation opportunities. 

With an understanding of public opinion and need, the agency can best inform and develop policies and 

decisions on national forest and grasslands.

Preserving high-quality recreation opportunities also requires maintaining lands, recreation facilities, 

roads, and trails. This infrastructure enables the Forest Service to provide opportunities to interact with 

wildlife, explore wilderness and heritage resources, engage in educational activities, and access offhighway vehicle trails. Partners contribute significant resources supporting tourism, interpretive 

services, recreation special uses, congressionally designated areas, and national forest scenic by-ways.

FY 2010 Budget Request

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

Discretionary Funds

Annual Appropriations

Forest & Rangeland Research $7,988 $6,037 $6,025

National Forest System $268,325 $275,357 $283,490

Capital Improvement & Maintenance $242,717 $267,476 $261,864

Supplemental & Emergency Funding - ARRA

Capital Improvement & Maintenance $200,000 $0 $0

Discretionary Funds Total $719,030 $548,870 $551,379

Permanent Funds $110,903 $111,508 $83,535

Trust Funds $20,812 $34,174 $54,026

Grand Total, Forest Service $850,745 $694,552 $688,940
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-26

Principal Programs to Achieve Goal 4

The principal programs for accomplishing the desired outcome of Goal 4 are the Recreation, Heritage, 

and Wilderness Programs. Research and Development produces recreation science and management 

tools to inform recreation managers on outdoor recreation trends and desires, as well as tools to improve 

management efficiency.

Wildlife and fish habitat is restored and enhanced as both a direct result of funds appropriated for that 

purpose as well as a result of the integrated efforts of other vegetation management programs for the 

enjoyment of the recreating public. 

Goal 4 – Key Performance Measure Assessment

Objective 4.1 Improve the quality and availability of outdoor recreation experiences. 

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

4.1.a Percentage of recreation 

sites maintained to 

standard

65% 67% 65% 57% 67% 118% 67% 66% 81%

4.1.b Percentage of total 

recreation capacity at 

developed recreation sites 

that meets accessibility 

standards

10% N/A 22% 20% 23% 115% 24% 27% 30%

4.1.c Percentage of trails that 

meet national quality 

standards

60% 39% N/A 40% 26% 65% 40% 40% 60%

4.1.d Percentage of customers 

who are satisfied with 

recreational facilities, 

services, and settings

80% 90% 89% 90% 91% 101% 90% 90% 85%

4.1.e Percentage of road system 

intended for passenger car 

use that is suitable for 

passenger car use

29% 90% 89% 88% 89% 101% 89% 89% 75%

Objective 4.2 Secure legal entry to national forest lands and waters.

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

4.2.a Percentage of high priority 

access rights-of-way 

acquired

90% 90% 78% 90% 74% 82% 85% 85% N/A

Objective 4.3 Improve the management of off-highway vehicle use.

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

4.3.a Percentage of NFS lands 

covered by new motor 

vehicle use maps reflecting 

a designated-use system of 

roads, trails, and areas

0.0% 13.0% 27.0% 70.0% 43.7% 62% 98.0% 100.0% 100.0%
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-27

Goal 4 - FY 2009 Results Summary and Assessment

The Forest Service met or exceeded four of the seven targets for Goal 4. The agency exceeded its target 

in recreation facilities managed to standard in large part because of additional resources provided through 

Recreation Enhancement Fund and the American Recovery and Reinvestment Act (ARRA), along with 

contributions from volunteers and youth organizations that help the agency manage the recreation, 

heritage, facilities, and trails programs. Many of the regions leveraged their effectiveness by recruiting 

volunteers to improve recreation facilities and directed resources towards routine maintenance projects 

and not for their more expensive deferred maintenance. 

The current inventory of passenger car roads presents a significant challenge to maintain to an appropriate 

standard. It is necessary to identify the appropriately sized, safe, and sustainable road system for 

passenger cars that provides access to and through the NFS lands. 

Implications for FY 2010 and FY 2011 

Emphasis toward achievement of these objectives will be maintained in FY 2010 and FY 2011 by: (1) 

continuing to create and strengthen partnerships, (2) focusing resources on mission-driven priorities, (3) 

connecting recreation benefits to communities, (4) providing for changing urban populations and, most 

importantly, (5) sustaining and expanding quality recreation opportunities. Ongoing efforts will continue 

to be made to ensure that these performance objectives are met, including emphasizing the use of 

additional resources through partnerships and other authorities that are directed towards reducing deferred 

maintenance. 

The National Forest Road System is an integral part of the rural transportation network and is operated 

and maintained to provide safe access for resource program activities. Efforts are being made to “right 

size” (establish the appropriate mix of road maintenance levels) the National Forest System (NFS) 

transportation system to establish an appropriately sized, safe, sustainable road system for passenger cars 

that provides access to and through NFS lands in support of current resource management needs. The 

deferred maintenance backlog on the road and bridge system is significant and is a barrier to a quality 

outdoor experience. Efforts are being made to identify the system of roads that: 1) meet identified needs, 

2) are sustainable with available resources, and 3) compliant with environmental and safety requirements. 

The reduction in available resources coupled with the rising cost of construction due to high fuel and 

material prices could affect the ability of the agency to meet its goals.

Means and Strategies for Success 

The program budget in this document identifies the operations and capital investments required to 

continue efforts on these objectives. In particular, the following major areas of emphasis will be 

addressed:

• Provide a diverse range of quality natural resource based recreation opportunities in partnership with 

people and communities.

• Protect the natural, cultural and scenic environment for present and future generations to enjoy.

• Partner with public and private recreation service providers to meet public needs.

• Implement corporate systems to ensure effective decisions, investments and sound business practices 

and enhance the professionalism of our workforce. 

• Identify that the system of roads needed to meet agency needs is sustainable with available resources 

and in compliance with environmental and safety requirements. 
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-28

• Establish the appropriate mix of road maintenance levels for the NFS Transportation System in line 

with financial resources and in conformance with approved land management resource plans.

• Validate/update Road Management Objectives with line officers.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-29

Goal 5: Maintain Basic Management Capabilities of the Forest Service

Key Outcome: Administrative facilities, information systems, and landownership management 

with the capacity to support a wide range of natural resource challenges.

Natural resources are affected by a wide range of forces, including natural events, overuse, and various 

management and law enforcement activities. The Forest Service maintains a workforce with the skills and 

capabilities to deal with the impacts of these events and assist other countries in managing their natural 

resources. Effectively managing its natural resources and ensuring the safety of the land and its users 

requires quality data, strategic unit plans, law enforcement officials, and facility maintenance, to meet 

these needs.

Land management plans, required of each unit in the National Forest System, facilitate the 

implementation of governing laws and regulations. Collaboration with the public ensures that Forest 

Service units continually address changing conditions and public needs. Inventory and monitoring 

activities provide verifiable data and spatial resource information to support land management planning, 

ecosystem assessments, and other program management needs. The Forest Service also maintains and 

manages dams, fire and administrative facilities, and supporting infrastructure critical to achieving 

resource management goals and objectives.

FY 2011 Budget Request 

Goal 5: Maintain Basic Management Capabilities of the Forest Service

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

Discretionary Funds

Annual Appropriations

State & Private Forestry $8,500 $9,818 $9,136

National Forest System $351,913 $361,466 $362,098

Capital Improvement & Maintenance $61,370 $52,804 $46,746

Supplemental & Emergency Funding - ARRA

Capital Improvement & Maintenance $220,000 $0 $0

Discretionary Funds Total $641,783 $424,088 $417,980

Permanent Funds $20,785 $49,150 $30,400

Grand Total, Forest Service $662,568 $473,238 $448,380
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-30

Principal Programs to Achieve Goal 5

Many Forest Service programs contribute toward achieving the outcome of Goal 5. Some of the 

programs include Land Management Planning, Law Enforcement, Inventory and Monitoring, Capital 

Improvement and Maintenance – Facilities, and International Programs.

Goal 5 – Key Performance Measure Assessment

Objective 5.1 Improve accountability through effective strategic and land management planning and 

efficient use of data and technology in resource management.

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

5.1.a Percentage of selected data 

in information systems 

that is current to standard

44% 46% 54% 64% 54% 84% 76% 78% 100%

Objective 5.2 Improve the administration of national forest lands and facilities in support of the 

agency’s mission.7

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

5.2.a Percentage of 

administrative facilties 

that are being maintained 

to standard

64% 66% 63% 66% 66% 100% 68% 65% 75%

5.2.b Percentage of newly 

reported encroachments 

and title claims 

administered to standard

60% N/A 3% 10% 5% 50% 20% 20% 90%

Goal 5 - FY 2009 Results Summary and Assessment

The Forest Service met two of its three targets under Goal 5; all FY 2009 results were on par with or 

improved over FY 2008.

In FY 2009, the agency completed its third year of piloting tools designed to assess the quantity and 

quality of data in corporate applications. The initial focus has been on assessing the completeness of 

selected data layers in agency geographic information system (GIS) data sets. However, the results 

provided above do not reflect total FY 2009 accomplishment due to a delay in providing direction to the 

field for capturing the needed data. In future years, an adjustment to the timing of the data request is 

needed to ensure the availability of needed information in a timely manner.

The Forest Service continues to implement an integrated strategy for reducing the agency's environmental 

footprint and improving operational consumption. This will be executed through achievement of energy 

intensity reduction goals, implementation of the agency's Environmental Management System (EMS), 

and the USDA Sustainable Building Implementation Plan.

The Forest Service continues to develop long-term outcome-based performance measures that fully cover 

the Capital Improvement and Maintenance program, including safety, condition suitability and 

 7

Efforts are underway to develop a new performance measure and associated targets for measure 5.2.b.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-31

environmental suitability, utilization, and mission dependency. It will also develop and implement a 

strategy to prioritize road, facility and trail improvements that reflect investment strategies as a common 

criterion for reducing the deferred maintenance backlog. Finally, the agency has utilized disposal 

authorities to convey excess or unneeded properties through the Facilities Realignment and Enhancement 

Act.

Implications for FY 2010 and FY 2011 

The agency will continue assessing the quantity and quality of data in its corporate applications. Future 

efforts will focus on examining data holdings in specific applications in addition to GIS data layers. The 

results of future assessments may not necessarily show the desired positive trend as more sets of data are 

either added to or potentially eliminated from the assessment. The intent is to develop the capability to 

conduct these assessments and use the results to become more efficient in acquiring only the data that is 

essential for meeting agency business requirements and reducing agency costs for managing data that is 

no longer needed. 

The Forest Service needs to utilize existing authorities, in addition to requesting new authorities or 

extensions as appropriate to reduce the inventory of unneeded buildings resulting in more efficient use of 

available funds to maintain the remaining facility portfolio at appropriate standards. Agency goals will be 

met when the unneeded buildings are removed or conveyed, needed buildings are sustainable within 

available budgets and in compliance with appropriate building codes, and located on sites that provide the 

needed Forest Service presence for the public.

Means and Strategies for Success

Actions to be taken to address performance are as follows:

• Coordinate inventory, monitoring, and assessment activities through the development and 

implementation of an integrated program planning process that addresses essential information needs 

related to agency business requirements.

• Focused funding and emphasis on collection and standardization of essential information;

• Implementation of a standards-based approach and framework for information management and 

related business operations. This includes implementation of a protocol (standards and methods) 

governance strategy;

• Foster and realize opportunities for collaboration, cooperation, and coordination across the Forest 

Service programs and with partners, including the public; local, State, and other Federal agencies; and 

non-government organizations.

• Focus resources towards right-sizing the portfolio of administrative infrastructure. 

• Implement local facility master plans, which identify infrastructure necessary to support the mission. 

• Divest obsolete or misaligned facilities through Conveyance authority or other means (approximately 

4,000 structures over the next ten years).

• Maintain mission critical facilities (as defined in the USDA Asset Management Plan) and other 

priority assets to the highest standard.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-32

Goal 6: Engage Urban America with Forest Service Programs

Key Outcome: Broader access by Americans to the long-term environmental, social, economic, and 

other types of benefits provided by the Forest Service.

The Forest Service promotes understanding and professional management of the Nation’s forests, 

including its urban forests. The National Forest System, State and Private Forestry, and Research and 

Development all contribute to an integrated approach for natural resources stewardship to better connect 

urban residents to the value of well-managed public and private forests and to improve quality of life. 

The Forest Service uses its institutional capacity, expertise and extensive partnerships to engage and 

benefit urban America by:

• providing all Americans broader access to the benefits trees and forests provide: clean air, clean and 

abundant water, reduced energy costs, reduced green house gas emissions, recreation, improved 

human health, and jobs;

• enriching the connections between urban America and nature by providing conservation education and 

meaningful outdoor experience;

• developing future natural resource leaders and providing meaningful outdoor recreational 

opportunities; and

• providing urban residents increased opportunities to participate in natural resources stewardship and 

management, including green jobs, and enhancing sustainable management of urban natural resources 

for the benefit and well being of all.

FY 2011 Budget Request

Goal 6: Engage Urban America with Forest Service Programs

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

Discretionary Funds

Annual Appropriations

Forest & Rangeland Research $5,272 $6,136 $6,185

State & Private Forestry $29,541 $30,377 $32,428

Discretionary Funds Total $34,813 $36,513 $38,613

Permanent Funds $5 $33 $33

Grand Total, Forest Service $34,818 $36,546 $38,646

Principal Programs to Achieve Goal 6

Many Forest Service programs contribute toward achieving the outcome of Goal 6, including Urban and 

Community Forestry (U&CF), Conservation Education (including the Smokey Bear and Woodsy Owl 

Licensee Programs), Recreation and Heritage and Wilderness, Research and Development, Integrated 

Resource Restoration, and others. 
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-33

Goal 6 – Key Performance Measure Assessment

Objective 6.1 Promote conservation education to increase environmental literacy through partnerships 

with groups that benefit and educate urban populations.

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

6.1.a Number of people who 

annually participate in 

Forest Service 

environmental literacy 

programs and activities

2,500,000 4,989,365 6,448,041 4,200,000 4,195,964 100% 10,000,000 10,000,000 3,200,000

Objective 6.2 Improve the management of urban and community forests to provide a wide range of 

public benefits.

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

6.2.a Number of communities 

with developing or 

established urban and 

community forestry 

programs resulting from 

Forest Service assistance

6,564 6,326 7,139 7,200 6,853 95% 7,200 7,200 10,000

Goal 6 - FY 2009 Results Summary and Assessment 

Both targets were met or exceeded for this goal in 2009. In FY 2009, the State U&CF Programs 

continued to provide educational, technical, and financial assistance to communities, and to report on 

local community accomplishments in improving urban forest management by hiring professional staff, 

developing policies and ordinances, developing forest management plans, and establishing community 

advisory groups. The States, U.S. Territories, and the District of Columbia reported assisting 6,853 

communities, where over 173 million people lived, with developing or established U&CF programs. This 

population served by the U&CF program represents approximately 75 percent of the people living in 

communities with the potential to develop programs to care for their trees and urban forest resources. The 

number of communities assisted in FY 2009 decreased slightly, about 5 percent, from FY 2008.

Implications for FY 2010 and FY 2011 

As Forest Service programs continue to be integrated and expanded to better engage urban America and 

achieve the outcome and strategic objectives of this goal, additional communities will be engaged in 

Forest Service programs. The benefits to urban America extend well beyond the limited strategic plan 

measures assigned to this Goal and additional strategic plan measures should be identified. The targets 

for plan measure 6.2 for FY 2010 and 2011 should be maintained at 7,200 communities based on FY 

2009 results and proposed funding levels. 

Means and Strategies for Success 

• Assist communities to increase professional urban forestry staffing, ordinances, management plans, 

and local advisory and advocacy groups for managing forest resources in cities, suburbs, and towns.

• Expand recreational opportunities and access for diverse and increasingly urban audiences on national 

forests and grasslands and on State, private, and municipal lands.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-34

• Develop methods to measure environmental literacy and techniques to engage urban residents in the 

management of urban forests.

• Integrate, coordinate, and disseminate existing and new ecological and social research on urban issues

• Increase Forest Service awareness of urban populations and urban natural resources through training 

and information sharing

• Develop partnerships with nontraditional partners to engage urban and underserved audiences.

• Facilitate the transfer of information, tools and technology to resource managers at the national, 

regional, State, and local level to ensure that urban trees and forests are strategically planned and 

managed to maximize the social, economic, and environmental services that they provide. 

• The agency will look for opportunities to accomplish watershed restoration objectives through youth 

programs.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-35

Goal 7: Provide Science-Based Applications and Tools for Sustainable Natural Resources 

Management

Key Outcome: Management decisions are informed by the best available science-based knowledge 

and tools.

The Forest Service provides science and technology solutions for clients and partners to sustainably 

manage forests and grasslands. Science-based applications and tools inform policy and resource 

management decisions to help achieve desired outcomes. To accomplish this goal, Research and 

Development (R&D) and Technology and Development (T&D) Centers will focus on organizational 

effectiveness as applied to natural resources management by public and private organizations. This 

includes applications of social sciences; organizational behavior; decision science and implementing 

effective fire management; response to global climate change; inventory and monitoring activities; 

landscape alteration; watershed management; energy demand; technology management; and policy 

analysis.

Important components of this work include developing and testing innovative methods of synthesizing 

available science; transforming science and technology into usable technologies and tools; and creating 

and disseminating science applications to users. Partnerships with educational institutions and others are 

critical to program success and effectiveness.

FY 2011 Budget Request 

Goal 7: Provide Science-Based Applications and Tools for Sustainable Natural Resources Management

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 President's 

Budget

Discretionary Funds

Annual Appropriations

Forest & Rangeland Research $92,072 $120,094 $115,951

State & Private Forestry $5,000 $5,035 $5,068

Other Appropriations $50 $50 $50

Discretionary Funds Total $97,122 $125,179 $121,069

Trust Funds $1,893 $2,350 $3,000

Grand Total, Forest Service $99,015 $127,529 $124,069

Principal Programs to Achieve Goal 7

The principal program that contributes toward achieving the outcome of Goal 7 is Forest Service R&D. 

Forest Service R&D provides science, technology, and applications in support of sound policies and 

management decision making. It also develops and conducts high quality research that is responsive to 

current and future resource priorities while providing effective applications and tools.

The Inventory and Monitoring strategic program area provides the resource data, analysis, and tools 

needed to identify current status and trends, management options and impacts, and threats and impacts 

from fire, insects, disease, and other natural processes.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-36

Goal 7 – Key Performance Measure Assessment

Objective 7.1 Increase the use of applications and tools developed by Forest Service Research & 

Development and Technology & Development Centers.8

Baseline

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Plan

FY2009 

Actual

Percent of 

Target 

Achieved

FY 2010 

Target

FY 2011 

Target

FY2012 

Goal

7.1.a Customer satisfaction with 

R&D products and 

services (ACSI score)

72 72 72 73 75 103% 75 75 75

7.1.b Number of patent 

applications filed, based 

on station and center 

discoveries, developments, 

and applications

10 11 6 6 6 100% 6 6 13

Goal 7 - FY 2009 Results Summary and Assessment 

The Forest Service achieved the annual results planned for both measures, exceeding the target for one of 

them. Customer satisfaction appears to have increased beyond expectation due to increased focus on 

science applications and mechanisms for delivering research results and deploying tools and products of 

that research. Because customer satisfaction is developed from a national tri-annual survey and analysis, 

variation is to be expected. 

Implications for FY 2010 and FY 2011

The target value for the Customer Satisfaction Index is 75 for FY 2011 because the Customer Satisfaction 

Survey is conducted every three years, and the recently completed Customer Satisfaction survey indicated 

an index score of 75. The FY 2010 and FY 2011 targets for the number of patent applications filed for 

are 6 based on recent numbers of applications filed. The projected target for FY 2012 was based on 

historic high levels and was developed at a time when both number of employees and R&D budgets were 

greater. 

Means and Strategies for Success 

• Develop and deploy cost-effective methods for inventory and monitoring activities. 

• Provide information and science-based tools that are used by managers and policymakers. 

• Develop and implement effective processes for engaging users in all phases of R&D study 

development.

• Develop and deploy analysis and decision-support systems.

• Develop tools for evaluating the efficiency and effectiveness of alternative management practices.

• Develop and deploy more effective methods for transferring scientific information, technologies, and 

applications to public and private sectors. 

 8 The American Customer Satisfaction Index (ASCI) assesses the satisfaction of private and other external 

customers with the relevance, usefulness, and accessibility of Research and Development products and services.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-37

Corrective Action Plans for Measures with FY 2009 Variance from Targets for Strategic Objectives

Strategic 

Objective

FY 2009 

Measure Target Actual

Percent 

of 

Target Planned Corrective Actions

1.1.a

Number and 

percentage of 

acres treated to 

restore fireadapted 

ecosystems 

moved toward 

desired conditions

1,107,100

40%

799,215

27%

72.2%

67.5%

While the agency exceeded fuel reduction 

results planned for all acres treated, acres 

moved toward desired conditions were below 

the results planned. A variety of factors 

influence the ability to meet this goal, 

including weather, resource availability, and 

the number of treatments required - it often 

takes multiple treatments to move an area 

toward its desired condition and it may take 

repeated entries over time to maintain an area 

in desired condition. The agency continues to 

increase its focus on treating more strategic 

acres, most of which are in more costly 

Wildland Urban Interface. The agency’s 

shift in focus to these priority acres means 

that fewer acres overall will be treated, 

meaning fewer will change condition class. 

Critical emphasis to continue agency efforts 

on this objective will be maintained in FY 

2010 and FY 2011. Outcomes will continue 

to be achieved by working in collaboration

with Federal and non-Federal partners and by 

working across programs. 

1.1.b

Number of acres 

brought into 

stewardship 

contracts

107,000 88,303 82.5%

No additional corrective action required. The 

shortfall is due to continued depressed 

economic conditions during FY 2009, and a 

related decline in demand for forest products. 

Based on the economic stimulus program and 

the ongoing recovery of the housing market, 

projections for 2010 and 2011 reflect a 

significant increase in stewardship 

contracting to meet resource management 

objectives.

2.3.b

Percentage of 

energy-mineral 

applications that 

are processed 

within prescribed 

timeframes

50% 7.9% 15.8%

The agency continues to process energymineral proposals but cannot issue final 

decisions or move to completion until 

outstanding legal issues have been resolved. 

No changes are anticipated at this time.

4.1.c

Percentage of 

trails that meet 

national quality 

standards

40% 25% 62.5%

The target shortfall was the result of staffing 

being shifted to trail projects funded through 

the American Recovery and Reinvestment 

Act (ARRA). No corrective action planned.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-38

Strategic 

Objective

FY 2009 

Measure Target Actual

Percent 

of 

Target Planned Corrective Actions

4.2.a

Percentage of 

high-priority 

access rights-ofway acquired

90% 74% 82.2%

The target shortfall was the result of the 

agency’s response to additional resources 

provided through the American Recovery and 

Reinvestments Act (ARRA) that were 

directed towards road and trail maintenance 

work across the Nation and with continued 

priority being placed on completing travel 

management implementation plans by 2010. 

No corrective action planned.

4.3.a

Percentage of 

NFS lands 

covered by new 

motor vehicle use 

maps reflecting a 

designated-use 

system of roads, 

trails, and areas

70% 43.7% 62.4%

Not achieving 70 percent of the target was 

the result of an unanticipated delay for a

number of national forests in the amount of 

time needed to complete the process leading 

up to producing a motor vehicle use map 

(MVUM). Delays included travel planning 

elements were more complex than originally 

anticipated, such as developing a proposed 

action, completing the environmental 

analysis, involving the public, tribal 

consultation, and coordination with state, 

county, and local government entities. 

Appeals have also delayed production of the 

MVUM. A schedule change has been 

approved in FY 2009, and the agency is on 

target to meet 100 percent completion by end 

of calendar year 2010. No corrective action 

needed.

5.1.a

Percentage of 

selected data in 

information 

systems that is 

current to 

standard

64% 53.9% 84.2%

In FY 2009 there was a delay in direction to 

the field for capturing the needed data. An 

adjustment to the timing of the data request 

will ensure more complete reporting in line 

with targets in the future.

5.2.b

Percentage of 

newly reported 

encroachments 

and title claims 

administered to 

standard

10% 5% 50%

The target shortfall, in general, was due to 

cases planned for resolution being 

significantly more expensive and time 

consuming than anticipated. Resolution of 

title management cases is extremely 

dependent on the complexity of the cases, 

funding levels and available workforce. No 

corrective action planned.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-39

External Audits and Reviews

FY 2009 OIG Audits Conducted on the Forest Service

Current OIG Audits (Audits less than 1 year old)

Audit Number Audit Title Report Issued? Audit Status

08401-09-FM FY 2008 Financial 

Statements

11/13/2008 Open

08601-53-SF Forest Service’s 

Replacement Plan for 

Firefighting Aerial 

Resources

7/16/2009 Open

Corrective actions in 

progress on the 9 

Recommendations; 1 

submitted for closure.

08601-54-SF Forest Service’s 

Firefighter Succession 

Planning Management 

Alert

11/19/2008 Chief Gail Kimball issued 

an e-mail on October 23, 

2008, directing all units to 

“stand down” further 

implementation of the GS401 series. Any fire 

management positions 

currently planned for 

staffing in the GS-401 

series at grades GS-9 

through GS-12 must also 

provide for staffing in the 

GS-462 series in order to 

accommodate employees 

who can only currently 

qualify in the GS-462 

series. Once the OIG final 

report is issued, FS will 

assess the recommended 

actions and develop the 

appropriate policy and 

path forward. The final 

audit has not been 

released. 

OIG Audits Officially Closed in FY 2009

Audit Number Audit Title Issue Date Audit Status

08003-05-SF Land Acquisition and 

Urban Lot Management

12/15/00 Closed

08099-06-SF Security Over USDA IT 

Resources

03/27/01 Closed

08401-02-FM FY 2002 Financial 

Statement Audit

01/09/03 Closed

08401-07-FM FY 2006 Financial 

Statement Audit

11/13/06 Closed

08601-06-AT Implementation of the 

Healthy Forest Initiative

09/06/06 Closed
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-40

Summary of Outstanding Audits (Audits over 1 Year old)

FY 2009 Beginning Inventory 17

 Audits added 3

Subtotals 20

 Audits closed 5

FY 2009 Ending Balance 15
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-41

FY 2009 GAO Active Audits

Job or Audit 

Report Number

Audit Title Responsible 

Deputy 

Area/RSA

Report 

Issued?

Audit Status

GAO-09-68 WILDLAND FIRE 

MANAGEMENT: 

Interagency Budget Tool 

Needs Further Development 

to Fully Meet Key Objectives

SPF 11/2008 Corrective actions in 

progress.

GAO-09-877 WILDLAND FIRE

MANAGEMENT: Federal 

Agencies Have Taken 

Important Steps Forward, but

Additional, Strategic Action 

Is Needed to Capitalize on 

Those Steps

SPF 9/2009 No Recommendations

08601-07-AT Invasive Species Program - - - In 

progress

08001-02-AT FS Contracted Labor Crews - - - In 

progress

08601-54-SF FS Firefighting Succession 

Plans

- - - In 

progress

08501-01-TE FS Acquisition of 

Information Technology 

Software/Hardware

- - - In 

progress

08016-02-SF FS Follow-up on Prior OIG 

Firefighter Safety Audits

- - - In 

progress

08601-55-SF FS Administration of Special 

Use Permits

- - - In 

progress

08601-56-SF FS Forest Legacy Program - - - In 

progress

08601-01-CH Rights-of-Way and 

Easements

- - - In 

progress

08401-10-FM FY 2009 Financial 

Statements

- - - In 

progress

Management Challenges

The Reports Consolidation Act of 2000 requires the Department of Agriculture (USDA), Office of 

Inspector General (OIG), to identify and report annually the most serious management challenges USDA 

and its agencies face. The major challenges identified for the Forest Service for FY 2009 were:

• Implementation of strong, integrated management control (internal control) systems still 

needed. 

• Better FS management and community action needed to improve the health of the national 

forests and Reduce the Cost of Fighting Fires. 

During FY 2009, the Forest Service obtained an eighth consecutive “clean’ audit opinion for the FY2009 

financial statements. For 2010, the remaining management challenges and the corrective actions to 

address the challenges are addressed below.
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-42

Implementation of Strong, Integrated Management Control (Internal Control) Systems

Improve Forest Service internal controls and management accountability in order to effectively manage 

its resources, measure its progress towards goals and objectives, and accurately report its 

accomplishments.

In response to this challenge, the Forest Service will:

• Conduct Washington Office oversight reviews on performance accountability in the regions 

and issue a report.

• Close 70% of open OIG and Government Accountability Office (GAO) audit 

recommendations in FY 2010.

• Implement corrective actions to close the remaining open audit recommendations related to 

ARRA.

• Conduct annual systems self-assessment for all financial/mixed-financial systems.

• Conduct annual internal control risk assessment throughout the agency and develop plans to 

address identified risks.

• Implement corrective actions identified through the Office of Management and Budget (OMB) 

Circular A-123, Appendix A (Internal Controls over Financial Reporting) process for financial 

processes.

• Improve monitoring and management of critical firefighter positions.

• Strengthen the justifications for acquisition of capital assets (specifically aircraft).

• Develop risk mitigation plan for ARRA.

Better Forest Service Management and Community Action Needed to Improve the Health of the 

national forests and Reduce the Cost of Fighting Fires. Develop methods to improve forest health. .

In response to this challenge, the Forest Service will:

• Obtain clarification on both the Forest Service and the States protection responsibilities in the 

Wildland-Urban Interface (WUI) and on other private properties that are threatened by wildfires.

• Develop partnerships with States and counties to facilitate development of fire prevention 

ordinances for use in planning and zoning in WUI areas.

• Continue to develop tools for the regions to use in assessing the risks from wildfires as part of the 

Continuous Improvement in Decision Making program.

• Continue to conduct large fire cost reviews in and implement corrective actions, as applicable.

• Using output from the improved hazardous Fuels Prioritization and Allocation System; continue 

to work with other land management agencies and State and local governments to conduct 

hazardous fuels reduction projects in those areas where they will have the greatest impacts on 

reduction risk.

• Direct human and physical resources t effectively address the changing environment of forest 

health and the WUI.

GAO High Risk Items and Other Major Government Challenges 

The Forest Service has no items on the GAO High Risk list. However, the agency does have an item on 

the GAO Management Challenges list for USDA as follows:

• USDA faces challenges that could affect its ability to carry out certain of its responsibilities 

effectively and efficiently. As a steward of the Nation's natural resources, USDA faces the 

increasing severity and frequency of wildland fires that cross into populated rural and urban 

areas. 
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-43

FY 2009 – FY 2011 Funding and FTEs by Strategic Goal

Goal 1: Restore, Sustain and Enhance the Nation's Forests and Grasslands

(dollars in thousands)

FY 2009 Enacted FY 2010 Enacted

FY 2011 President's 

Budget FY2011 vs FY2010

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Annual Appropriations

Discretionary Funds $3,182,175 19,289 $3,628,078 21,508 $3,768,108 21,672 $140,030 164

Forest & Rangeland Research $150,503 1,057 $140,907 932 $137,931 932 -$2,976 0

State & Private Forestry $141,402 422 $152,002 393 $144,335 393 -$7,667 0

National Forest System $631,687 4,981 $652,398 4,984 $750,353 5,451 $97,955 467

Capital Improvement & Maintenance $121,953 540 $163,452 610 $87,533 318 -$75,919 -292

Other Appropriations $5,000 18 $2,582 10 $2,606 10 $24 0

Wildland Fire Management $2,131,630 12,271 $2,103,737 14,579 $2,072,350 14,568 -$31,387 -11

FLAME Wildfire Suppression Reserve Fund $0 0 $413,000 0 $291,000 0 -$122,000 0

Presidential Wildland Fire Contingency Reserve $0 0 $0 0 $282,000 0 $282,000 0

Mandatory Appropriations

Permanent Funds $592,543 458 $552,235 455 $512,550 472 -$39,685 17

Trust Funds $105,616 723 $100,823 720 $78,141 479 -$22,682 -241

Supplemental & Emergency Funding $0 68 $0 0 $0 0 $0 0

Supplemental & Emergency Funding - Fire $200,000 254 $0 0 $0 0 $0 0

Supplemental & Emergency Funding - ARRA

Discretionary Funds $540,000 30 $0 36 $0 0 $0 -36

Capital Improvement & Maintenance $40,000 0 $0 0 $0 0 $0 0

Wildland Fire Management $500,000 30 $0 36 $0 0 $0 -36

Grand Total, Forest Service $4,620,334 20,822 $4,281,136 22,719 $4,358,799 22,623 $77,663 -96

Goal 2: Provide and Sustain Benefits to the American People

(dollars in thousands)

FY 2009 Enacted FY 2010 Enacted

FY 2011 President's 

Budget FY2011 vs FY2010

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Annual Appropriations

Discretionary Funds $340,126 2,505 $344,389 2,461 $244,474 1,700 -$99,915 -761

Forest & Rangeland Research $38,400 246 $35,506 232 $35,027 232 -$479 0

State & Private Forestry $4,973 1 $5,000 0 $0 0 -$5,000 0

National Forest System $224,819 1,820 $227,961 1,773 $163,597 1,203 -$64,364 -570

Capital Improvement & Maintenance $69,353 427 $72,322 444 $42,250 253 -$30,072 -191

Other Appropriations $2,581 11 $3,600 12 $3,600 12 $0 0

Mandatory Appropriations

Permanent Funds $20,048 165 $29,565 189 $29,225 187 -$340 -2

Trust Funds $22,126 149 $24,953 154 $21,233 136 -$3,720 -18

Supplemental & Emergency Funding - ARRA

Discretionary Funds $190,000 0 $0 0 $0 0 $0 0

Capital Improvement & Maintenance $190,000 0 $0 0 $0 0 $0 0

Grand Total, Forest Service $572,300 2,819 $398,907 2,804 $294,932 2,023 -$103,975 -781

Goal 3: Conserve Open Space

(dollars in thousands)

FY 2009 Enacted FY 2010 Enacted

FY 2011 President's 

Budget FY2011 vs FY2010

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Annual Appropriations

Discretionary Funds $162,517 388 $208,140 386 $235,006 372 $26,866 -14

Forest & Rangeland Research $2,145 13 $3,332 21 $3,235 21 -$97 0

State & Private Forestry $76,445 87 $105,829 88 $130,626 88 $24,797 0

National Forest System $33,061 232 $34,157 232 $26,181 218 -$7,976 -14

Land Acquisition $50,866 56 $64,822 45 $74,964 45 $10,142 0

Mandatory Appropriations

Trust Funds $2,135 13 $2,650 13 $2,500 12 -$150 -1

Grand Total, Forest Service $164,652 401 $210,790 399 $237,506 384 $26,716 -15
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-44

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities

(dollars in thousands)

FY 2009 Enacted FY 2010 Enacted

FY 2011 President's 

Budget FY2011 vs FY2010

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Annual Appropriations

Discretionary Funds $519,030 3,687 $548,870 3,731 $551,379 3,674 $2,509 -57

Forest & Rangeland Research $7,988 50 $6,037 40 $6,025 40 -$12 0

National Forest System $268,325 2,152 $275,357 2,127 $283,490 2,123 $8,133 -4

Capital Improvement & Maintenance $242,717 1,485 $267,476 1,564 $261,864 1,511 -$5,612 -53

Mandatory Appropriations

Permanent Funds $110,903 679 $111,508 626 $83,535 585 -$27,973 -41

Trust Funds $20,812 129 $34,174 131 $54,026 329 $19,852 198

Supplemental & Emergency Funding - ARRA

Discretionary Funds $200,000 25 $0 113 $0 0 $0 -113

Capital Improvement & Maintenance $200,000 25 $0 113 $0 0 $0 -113

Grand Total, Forest Service $850,745 4,520 $694,552 4,601 $688,940 4,588 -$5,612 -13

Goal 5: Maintain Basic Management Capabilities of the Forest Service

(dollars in thousands)

FY 2009 Enacted FY 2010 Enacted

FY 2011 President's 

Budget FY2011 vs FY2010

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Annual Appropriations

Discretionary Funds $421,783 2,500 $424,088 2,411 $417,980 2,286 -$6,108 -125

State & Private Forestry $8,500 28 $9,818 30 $9,136 30 -$682 0

National Forest System $351,913 2,260 $361,466 2,186 $362,098 2,090 $632 -96

Capital Improvement & Maintenance $61,370 212 $52,804 195 $46,746 166 -$6,058 -29

Mandatory Appropriations

Permanent Funds $20,785 49 $49,150 59 $30,400 52 -$18,750 -7

Supplemental & Emergency Funding - ARRA

Discretionary Funds $220,000 0 $0 0 $0 0 $0 0

Capital Improvement & Maintenance $220,000 0 $0 0 $0 0 $0 0

Grand Total, Forest Service $662,568 2,549 $473,238 2,470 $448,380 2,338 -$24,858 -132

Goal 6: Engage Urban America with Forest Service Programs

(dollars in thousands)

FY 2009 Enacted FY 2010 Enacted

FY 2011 President's 

Budget FY2011 vs FY2010

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Annual Appropriations

Discretionary Funds $34,813 80 $36,513 85 $38,613 85 $2,100 0

Forest & Rangeland Research $5,272 35 $6,136 40 $6,185 40 $49 0

State & Private Forestry $29,541 45 $30,377 45 $32,428 45 $2,051 0

Mandatory Appropriations

Permanent Funds $5 0 $33 0 $33 0 $0 0

Grand Total, Forest Service $34,818 80 $36,546 85 $38,646 85 $2,100 0

Goal 7: Provide Science-Based Applications and Tools for Sustainable Natural Resources Management

(dollars in thousands)

FY 2009 Enacted FY 2010 Enacted

FY 2011 President's 

Budget FY2011 vs FY2010

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Annual Appropriations

Discretionary Funds $97,122 663 $125,179 805 $121,069 805 -$4,110 0

Forest & Rangeland Research $92,072 648 $120,094 790 $115,951 790 -$4,143 0

State & Private Forestry $5,000 15 $5,035 15 $5,068 15 $33 0

Other Appropriations $50 0 $50 0 $50 0 $0 0

Mandatory Appropriations

Trust Funds $1,893 11 $2,350 11 $3,000 14 $650 3

Grand Total, Forest Service $99,015 674 $127,529 816 $124,069 819 -$3,460 3
FY 2011 Budget Justification USDA Forest Service

Annual Performance Report 3-45

All Funds

(dollars in thousands)

FY 2009 Enacted FY 2010 Enacted

FY 2011 President's 

Budget FY2011 vs FY2010

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Annual Appropriations

Discretionary Funds $4,757,566 29,112 $5,315,256 31,387 $5,376,629 30,594 $61,373 -793

Forest & Rangeland Research $296,380 2,049 $312,012 2,055 $304,354 2,055 -$7,658 0

State & Private Forestry $265,861 598 $308,061 571 $321,593 571 $13,532 0

National Forest System $1,509,805 11,445 $1,551,339 11,302 $1,585,719 11,085 $34,380 -217

Capital Improvement & Maintenance $495,393 2,664 $556,053 2,813 $438,393 2,248 -$117,660 -565

Land Acquisition $50,866 56 $64,822 45 $74,964 45 $10,142 0

Other Appropriations $7,631 29 $6,232 22 $6,256 22 $24 0

Wildland Fire Management $2,131,630 12,271 $2,103,737 14,579 $2,072,350 14,568 -$31,387 -11

FLAME Wildfire Suppression Reserve Fund $0 0 $413,000 0 $291,000 0 -$122,000 0

Presidential Wildland Fire Contingency Reserve $0 0 $0 0 $282,000 0 $282,000 0

Mandatory Appropriations

Permanent Funds $744,284 1,351 $742,491 1,329 $655,743 1,296 -$86,748 -33

Trust Funds $152,582 1,025 $164,950 1,029 $158,900 970 -$6,050 -59

Supplemental & Emergency Funding $0 68 $0 0 $0 0 $0 0

Supplemental & Emergency Funding - Fire $200,000 254 $0 0 $0 0 $0 0

Supplemental & Emergency Funding - ARRA

Discretionary Funds $1,150,000 55 $0 149 $0 0 $0 -149

Capital Improvement & Maintenance $650,000 25 $0 113 $0 0 $0 -113

Wildland Fire Management $500,000 30 $0 36 $0 0 $0 -36

Grand Total, Forest Service $7,004,432 31,865 $6,222,697 33,894 $6,191,272 32,860 -$31,425 -1,034
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-1

Appropriation Language and Proposed Changes in Language (Title IV)

Material proposed for deletion is enclosed in bold brackets; new language is inderlined and bold. Changes 

are based on the Department of the Interior, Environment, and Related Agencies Appropriations Act, 

2010 (P.L. 111-88)

FOREST SERVICE

FOREST AND RANGELAND RESEARCH

1.

1.

For necessary expenses of forest and rangeland research as authorized by law, [$312,012,000] $304,354,000, 

to remain available until expended: Provided, That of the funds provided, [$66,939,000] $61,939,000 is for the 

forest inventory and analysis program.

1. Reflects change in the level of funding.

STATE AND PRIVATE FORESTRY

1.

1.

2.

For necessary expenses of cooperating with and providing technical and financial assistance to States, 

territories, possessions, and others, and for forest health management, including treatments of pests, 

pathogens, and invasive or noxious plants and for restoring and rehabilitating forests damaged by pests or 

invasive plants, cooperative forestry, and education and land conservation activities and conducting an 

international program as authorized, [$308,061,000] $321,593,000 to remain available until expended, as 

authorized by law; of which [$76,460,000] $100,110,000 is to be derived from the Land and Water 

Conservation Fund[;and of which $2,000,000 may be made available to the Pest and Disease Revolving Loan 

Fund established by section 10205(b) of the Food, Conservation, and Energy Act of 2008 (16 U.S.C. 

2104a(b))].

1. Reflects change in the level of funding.

2. No funding included in FY 2011.

NATIONAL FOREST SYSTEM (INCLUDING TRANSFERS OF FUNDS)

1.

2.

3.

For necessary expenses of the Forest Service, not otherwise provided for, for management, protection, 

improvement, and utilization of the National Forest System, [$1,551,339,000] $1,585,719,000, to remain 

available until expended, which shall include 50 percent of all moneys received during prior fiscal years as 

fees collected under the Land and Water Conservation Fund Act of 1965, as amended, in accordance with 

section 4 of the Act (16 U.S.C. 460l–6a(i)): Provided, [That, through fiscal year 2012, the Secretary may 

authorize the expenditure or transfer of up to $10,000,000 to the Department of the Interior, Bureau of Land 

Management, for removal, preparation, and adoption of excess wild horses and burros from National Forest 

System lands, and for the performance of cadastral surveys to designate the boundaries of such lands] That of 

the funds provided, $40,000,000 shall be transferred into the Collaborative Forest Landscape 

Restoration Fund for ecological restoration treatments as authorized by 16 U.S.C. 7303(f).

1. Reflects change in the level of funding.

2. Provision no longer needed because authority to transfer funds to the Department of the 

Interior is authorized through fiscal year 2012.

3. National Forest System funds totaling $40 million will be deposited in the Collaborative 

Forest Landscape Restoration fund. 
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-2

CAPITAL IMPROVEMENT AND MAINTENANCE (INCLUDING TRANSFER OF FUNDS)

1.

1.

2.

For necessary expenses of the Forest Service, not otherwise provided for, [$556,053,000] $438,393,000, to 

remain available until expended, for construction, capital improvement, maintenance and acquisition of 

buildings and other facilities and infrastructure; and for construction, capital improvement, decommissioning, 

and maintenance of forest roads and trails by the Forest Service as authorized by16 U.S.C. 532–538 and 23 

U.S.C. 101 and 205: Provided, That [$90,000,000]$50,371,000 shall be designated for urgently needed road 

decommissioning, road and trail repair and maintenance and associated activities, and removal of fish passage 

barriers, especially in areas where Forest Service roads may be contributing to water quality problems in 

streams and water bodies which support threatened, endangered or sensitive species or community water 

sources: Provided further, That funds provided herein shall be available for the decommissioning of roads, 

including unauthorized roads not part of the transportation system, which are no longer needed[: Provided 

further, That no funds shall be expended to decommission any system road until notice and an opportunity for 

public comment has been provided on each decommissioning project: Provided further, That the 

decommissioning of unauthorized roads not part of the official transportation system shall be expedited in 

response to threats to public safety, water quality, or natural resources: Provided further, That funds becoming 

available in fiscal year 2010 under the Act of March 4, 1913 (16 U.S.C. 501) shall be transferred to the 

General Fund of the Treasury and shall not be available for transfer or obligation for any other purpose unless 

the funds are appropriated].

1. Reflects change in the level of funding.

2. Provision unnecessarily restricts agency discretion. Preserves authority provided by the Act 

of March 4, 1913 to retain 10 percent of receipts from the national forests in a permanent 

fund for maintenance of roads, trails, and bridges. This provides the agency with additional 

opportunity to correct road and trail deficiencies that adversely affect ecosystem, reduce 

deferred maintenance, and protect Federal investments made in the agency’s infrastructure 

without sole reliance on discretionary appropriations.

LAND ACQUISITION

1.

For expenses necessary to carry out the provisions of the Land and Water Conservation Fund Act of 1965, as 

amended (16 U.S.C. 460l–4 through 11), including administrative expenses, and for acquisition of land or 

waters, or interest therein, in accordance with statutory authority applicable to the Forest Service, 

[$63,522,000] $73,664,000, to be derived from the Land and Water Conservation Fund and to remain 

available until expended.

1. Reflects change in the level of funding.

ACQUISITION OF LANDS FOR NATIONAL FORESTS SPECIAL ACTS

For acquisition of lands within the exterior boundaries of the Cache, Uinta, and Wasatch National Forests, 

Utah; the Toiyabe National Forest, Nevada; and the Angeles, San Bernardino, Sequoia, and Cleveland 

National Forests, California, as authorized by law, $1,050,000, to be derived from forest receipts.

ACQUISITION OF LANDS TO COMPLETE LAND EXCHANGES

For acquisition of lands, such sums, to be derived from funds deposited by State, county, or municipal 

governments, public school districts, or other public school authorities, and for authorized expenditures from 

funds deposited by non-Federal parties pursuant to Land Sale and Exchange Acts, pursuant to the Act of 

December 4, 1967, as amended (16 U.S.C. 484a), to remain available until expended (16 U.S.C. 460l–516–

617a, 555a; Public Law 96–586; Public Law 76–589, 76–591; and Public Law 78–310).
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-3

RANGE BETTERMENT FUND

For necessary expenses of range rehabilitation, protection, and improvement, 50 percent of all moneys 

received during the prior fiscal year, as fees for grazing domestic livestock on lands in National Forests in the 

16 Western States, pursuant to section 401(b)(1) of Public Law 94–579, as amended, to remain available until 

expended, of which not to exceed 6 percent shall be available for administrative expenses associated with onthe-ground range rehabilitation, protection, and improvements.

GIFTS, DONATIONS AND BEQUESTS FOR FOREST AND RANGELAND RESEARCH

For expenses authorized by 16 U.S.C. 1643(b), $50,000, to remain available until expended, to be derived 

from the fund established pursuant to the above Act.

MANAGEMENT OF NATIONAL FOREST LANDS FOR SUBSISTENCE USES

For necessary expenses of the Forest Service to manage Federal lands in Alaska for subsistence uses under title 

VIII of the Alaska National Interest Lands Conservation Act (Public Law 96–487), [$2,582,000]$2,606,000, to 

remain available until expended.

WILDLAND FIRE MANAGEMENT (INCLUDING TRANSFERS OF FUNDS)

1.

For necessary expenses for forest fire presuppression activities on National Forest System lands, for 

emergency fire suppression on or adjacent to such lands or other lands under fire protection agreement, 

hazardous fuels reduction on or adjacent to such lands, and for emergency rehabilitation of burned-over

National Forest System lands and water, [$2,103,737,000] $2,072,350,000, to remain available until expended: 

Provided, That such funds including unobligated balances under this heading, are available for repayment of 

advances from other appropriations accounts previously transferred for such purposes: Provided further, That 

such funds shall be available to reimburse State and other cooperating entities for services provided in 

response to wildfire and other emergencies or disasters to the extent such reimbursements by the Forest 

Service for non-fire emergencies are fully repaid by the responsible emergency management agency: 

[Provided further, That, notwithstanding any other provision of law, $8,000,000 of funds appropriated under 

this appropriation shall be used for Fire Science Research in support of the Joint Fire Science Program: 

Provided further, That all authorities for the use of funds, including the use of contracts, grants, and 

cooperative agreements, available to execute the Forest and Rangeland Research appropriation, are also 

available in the utilization of these funds for Fire Science Research: Provided further, That funds provided 

shall be available for emergency rehabilitation and restoration, hazardous fuels reduction activities in the 

urban-wildland interface, support to Federal emergency response, and wildfire suppression activities of the 

Forest Service: Provided further, That of the funds provided, $350,285,000 is for hazardous fuels reduction 

activities, $11,600,000 is for rehabilitation and restoration, $23,917,000 is for research activities and to make 

competitive research grants pursuant to the Forest and Rangeland Renewable Resources Research Act, as 

amended (16 U.S.C. 1641 et seq.), $71,250,000 is for State fire assistance, $9,000,000 is for volunteer fire 

assistance, $20,752,000 is for forest health activities on Federal lands and $11,428,000 is for forest health 

activities on State and private lands: Provided further, That no less than $75,000,000 in prior-year wildfire 

suppression balances shall be made available in addition to amounts provided in this Act for that purpose:

Provided further, That of the funds provided for hazardous fuels reduction, $10,000,000 shall be deposited in 

the Collaborative Forest Landscape Restoration Fund for ecological restoration treatments as authorized by 16 

U.S.C. 7303(f):] Provided further, That amounts in this paragraph may be transferred to the ‘‘State and Private 

Forestry’’, ‘‘National Forest System’’, and ‘‘Forest and Rangeland Research’’ accounts to fund State fire 

assistance, volunteer fire assistance, forest health management, forest and rangeland research, the Joint Fire 

Science Program, vegetation and watershed management, heritage site rehabilitation, and wildlife and fish

habitat management and restoration: Provided further, [That up to $15,000,000 of the funds provided under 

this heading for hazardous fuels treatments may be transferred to and made a part of the ‘‘National Forest 

System’’ account at the sole discretion of the Chief 30 days after notifying the House and the Senate 

Committees on Appropriations: Provided further,] That the costs of implementing any cooperative agreement 

between the Federal Government and any non-Federal entity may be shared, as mutually agreed on by the 
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-4

2.

3.

4.

affected parties: Provided further, That [up to $15,000,000, of the funds provided herein, may be used by the 

Secretary of Agriculture to into procurement contracts or cooperative agreements, or issue grants, for 

hazardous fuels reduction activities and for training and monitoring associated with such hazardous fuels 

reduction activities, on Federal land, or on adjacent non-Federal land for activities that benefit resources on 

Federal land: Provided further, That funds made available to implement the Community Forest Restoration 

Act, Public Law 106–393, title VI, shall be available for use on non-Federal lands in accordance with 

authorities made available to the Forest Service under the State and Private Forestry Appropriation]of the 

funds provided herein, the Secretary of Agriculture may enter into procurement contracts or cooperative 

agreements, or issue grants for hazardous fuels reduction activities and for training and monitoring associated 

with such hazardous fuels reduction activities, on Federal land, or on adjacent non-Federal land for activities 

that benefit resources on Federal land: Provided further, That the Secretary of the Interior and the Secretary of 

Agriculture may authorize the transfer of funds appropriated for wildland fire management, in an aggregate 

amount not to exceed [$50,000,000] $10,000,000, between the Departments when such transfers would 

facilitate and expedite jointly funded wildland fire management programs and projects: Provided further, That 

of the funds provided for hazardous fuels reduction, not to exceed $5,000,000, may be used to make grants, 

using any authorities available to the Forest Service under the State and Private Forestry appropriation, for the 

purpose of creating incentives for increased use of biomass from national forest lands[:Provided further, That 

funds designated for wildfire suppression shall be assessed for cost pools on the same basis as such 

assessments are calculated against other agency programs].

1. Reflects change in the level of funding

2. Removes grant authority and Community Forest Restoration Act funding

3. Adds language removing limit on spending for procurement contracts, cooperative

agreements, or issue grants for hazardous fuels reduction activities.

4. Reflects change in the level of funding.

FLAME WILDFIRE SUPPRESSION RESERVE FUND (INCLUDING TRANSFERS OF FUNDS)

1.

For [deposit in the FLAME Wildfire Suppression Reserve Fund created in title V, section 502(b) of this Act, 

$413,000,000, to remain available until expended]necessary expenses for large fire suppression operations 

of the Department of Agriculture and as a reserve fund for suppression and Federal emergency 

response activities, $291,000,000, to remain available until expended: Provided, That such amounts are 

available only for transfer to the “Wildland Fire Management” account and only following a 

declaration by the Secretary that either (1) a wildland fire suppression event meets certain previouslyestablished risk-based written criteria for significant complexity, severity, or threat posed by the fire or 

(2) funds in the “Wildland Fire Management” account will be exhausted within 30 days.

1. Reflects change in the level of funding. Establishes criteria for the use of the FLAME fund 

and transfers to “Wildland Fire Management” account.

PRESIDENTIAL WILDLAND FIRE CONTINGENCY RESERVE (INCLUDING TRANSFERS 

OF FUNDS)

1. For necessary expenses for emergency fire suppression operations of the Department of Agriculture, 

$282,000,000, to remain available until expended: Provided, That such amounts are available only for 

transfer to the “Wildland Fire Management” account, and may be transferred only if (1) the Secretary 

of Agriculture has issued a declaration that all funds appropriated for emergency fire suppression 

operations under the headings “Wildland Fire Management” and “FLAME Wildfire Suppression 

Reserve Fund” will be exhausted within 30 days, and (2) the President issues a written determination 

that the transfer of such amounts is necessary for emergency fire suppression and Federal emergency 

response operations.

1. Establishes and funds the Presidential Wildland Fire Contingency Reserve.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-5

ADMINISTRATIVE PROVISIONS, FOREST SERVICE (INCLUDING TRANSFERS OF 

FUNDS)

Appropriations to the Forest Service for the current fiscal year shall be available for: (1) purchase of passenger 

motor vehicles; acquisition of passenger motor vehicles from excess sources, and hire of such vehicles; 

purchase, lease, operation, maintenance, and acquisition of aircraft from excess sources to maintain the 

operable fleet for use in Forest Service wildland fire programs and other Forest Service programs; 

notwithstanding other provisions of law, existing aircraft being replaced may be sold, with proceeds derived or 

trade-in value used to offset the purchase price for the replacement aircraft; (2) services pursuant to 7 U.S.C. 

2225, and not to exceed $100,000 for employment under 5 U.S.C. 3109; (3) purchase, erection, and alteration 

of buildings and other public improvements (7 U.S.C. 2250); (4) acquisition of land, waters, and interests 

therein pursuant to 7 U.S.C. 428a; (5) for expenses pursuant to the Volunteers in the National Forest Act of 

1972 (16 U.S.C.558a, 558d, and 558a note); (6) the cost of uniforms as authorized by 5 U.S.C. 5901–5902; 

and (7) for debt collection contracts in accordance with 31 U.S.C. 3718(c).

1.

2.

3.

Any appropriations or funds available to the Forest Service may be transferred to the Wildland Fire 

Management appropriation for forest firefighting, emergency rehabilitation of burned-over or damaged lands 

or waters under its jurisdiction, and fire preparedness due to severe burning conditions [five days after the 

Secretary notifies] upon the Secretary’s notification of the House and Senate Committees on Appropriations 

that all fire suppression funds appropriated under the headings ‘‘Wildland Fire Management’’ and ‘‘FLAME 

Wildfire Suppression Reserve Fund’’ [shall be] and “Presidential Wildland Fire Contingency Reserve”

[fully obligated]will be exhausted within 30 days[: Provided, That all funds used pursuant to this paragraph 

must be replenished by a supplemental appropriation which must be requested as promptly as possible].

1. Removes wait time.

2. Expands to include the “Presidential Wildland Fire Contingency Reserve”.

3. Changes authorization from requiring obligation of funds to exhaustion of the identified 

accounts.

Funds appropriated to the Forest Service shall be available for assistance to or through the Agency for 

International Development in connection with forest and rangeland research, technical information, and 

assistance in foreign countries, and shall be available to support forestry and related natural resource activities 

outside the United States and its territories and possessions, including technical assistance, education and 

training, and cooperation with United States and international organizations.

1. [None of the funds made available to the Forest Service in this Act or any other Act with respect to any fiscal 

year shall be subject to transfer under the provisions of section 702(b) of the Department of Agriculture 

Organic Act of 1944 (7 U.S.C. 2257), section 442 of Public Law 106–224 (7 U.S.C. 7772), or section 

10417(b) of Public Law 107–107 (7 U.S.C. 8316(b)).]

1. Removes provision.

1. [None of the funds available to the Forest Service may be reprogrammed without the advance approval of the 

House and Senate Committees on Appropriations in accordance with the reprogramming procedures contained 

in the joint explanatory statement of the managers accompanying this Act.]

1. Removes provision.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-6

1. [Not more than $78,350,000of funds available to the Forest Service shall be transferred to the Working Capital 

Fund of the Department of Agriculture and not more than $19,825,000of funds available to the Forest Service 

shall be transferred to the Department of Agriculture for Department Reimbursable Programs, commonly 

referred to as Greenbook charges. Nothing in this paragraph shall prohibit or limit the use of reimbursable 

agreements requested by the Forest Service in order to obtain services from the Department of Agriculture’s 

National Information Technology Center.]

1. Removes provision.

1.

1.

1.

2.

Funds available to the Forest Service shall be available [to conduct a program of up to $5,000,000] for priority 

projects within the scope of the approved budget, [of ]which [$2,500,000] shall be carried out by the Youth 

Conservation Corps and [$2,500,000] shall be carried out under the authority of the Public Lands Corps Act 

of 1993, Public Law 103-82, as amended by Public Lands Corps Healthy Forests Restoration Act of 2005, 

Public Law 109–154.

1. Provision unnecessarily restricts agency discretion.

2. Includes reference to authorizing legislation.

Of the funds available to the Forest Service, $4,000 is available to the Chief of the Forest Service for official 

reception and representation expenses.

1.

2.

Pursuant to sections 405(b) and 410(b) of Public Law 101–593, of the funds available to the Forest Service, up 

to $3,000,000 may be advanced in a lump sum to the National Forest Foundation to aid conservation 

partnership projects in support of the Forest Service mission, without regard to when the Foundation incurs 

expenses, for projects on or benefitting National Forest System lands or related to Forest Service programs: 

Provided, That of the Federal funds made available to the Foundation, no more than $300,000 shall be 

available for administrative expenses: Provided further, That the Foundation shall obtain, by the end of 

the period of Federal financial assistance, private contributions to match on at least one-for-one basis funds 

made available by the Forest Service: Provided further, That the Foundation may transfer Federal funds to 

Federal or a non-Federal recipient for a project at the same rate that the recipient has obtained the non-Federal 

matching funds: Provided further, That authorized investments of Federal funds held by the Foundation may 

be made only in interest-bearing obligations of the United States or in obligations guaranteed as to both 

principal and interest by the United States.

1. Provision unnecessarily restricts agency discretion.

2. Limits Federal funds for administrative expenses.

1.

Pursuant to section 2(b)(2) of Public Law 98–244, $3,000,000 of the funds available to the Forest Service 

[shall] may be advanced to the National Fish and Wildlife Foundation in a lump sum to aid cost-share 

conservation projects, without regard to when expenses are incurred, on or benefitting National Forest System 

lands or related to Forest Service programs: Provided, That such funds shall be matched on at least a one-forone basis by the Foundation or its sub-recipients: Provided further, That the Foundation may transfer Federal 

funds to a Federal or non-Federal recipient for a project at the same rate that the recipient has obtained the 

non-Federal matching funds.

1. Provision unnecessarily restricts agency discretion.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-7

1.

Funds appropriated to the Forest Service shall be available for interactions with and providing technical 

assistance to rural communities and natural resource-based businesses for sustainable rural development 

purposes: Provided, That no more than 2 percent of any unit’s budget may be used for such purposes: 

Provided further, That no more than 5 percent of the funds in any budget line item may be used for 

such purposes.

1. Provision limits extent of funding for rural communities and natural resource-based 

businesses for sustainable rural development purposes.

1. [Funds appropriated to the Forest Service shall be available for payments to counties within the Columbia 

River Gorge National Scenic Area, pursuant to section 14(c)(1) and (2), and section 16(a)(2) of Public Law 

99–663.]

1. Removes provision.

1. [An eligible individual who is employed in any project funded under title V of the Older American Act of 

1965 (42 U.S.C. 3056 et seq.) and administered by the Forest Service shall be considered to be a Federal 

employee for purposes of chapter 171 of title 28, United States Code.]

1. Provision no longer necessary. The Forest Service no longer administers this program. 

However, the agency is currently partnering with eight Senior Community Service 

Employment Program (SCSEP) National Grantees to host approximately 1,000 positions on 

national forests. As required by the Older American Act (section 502(c)), the National 

Grantees are to provide 10 percent of the cost of operating the SCSEP projects, each year. 

This can be in the form of cash or in-kind contribution, and it must be from a non-federal 

source. This provision authorizes agency appropriations to be considered in the non-federal 

in-kind match to the operation of the program. The National Grantees count the supervision 

provided by the Forest Service to the SCSEP participants as the in-kind contribution covering 

the 10 percent match.

1.

Funds available to the Forest Service, not to exceed $55,000,000, shall be assessed for the purpose of 

performing fire, administrative and other facilities maintenance and decommissioning. Such assessments 

shall occur using a square foot rate charged on the same basis the agency uses to assess programs for payment 

of rent, utilities, and other support services.

1. Clarifies the use of facilities maintenance funds to include decommissioning of unneeded 

facilities as defined in the agency’s budget justification special exhibit entitled “Facilities 

Maintenance Assessment”.

1.

Notwithstanding any other provision of law, any appropriations or funds available to the Forest Service not to 

exceed $500,000 may be used to reimburse the Office of the General Counsel (OGC), Department of 

Agriculture, for travel and related expenses incurred as a result of OGC assistance or participation requested 

by the Forest Service at meetings, training sessions, management reviews, land purchase negotiations and 

similar non-litigation related matters.[ Future budget justifications for both the Forest Service and the 

Department of Agriculture should clearly display the sums previously transferred and the requested funding 

transfers.]

1. Removes requirement to display funds requested and transferred to the Office of the General 

Counsel, Department of Agriculture in future budget justifications.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-8

1. [The 19th unnumbered paragraph under heading ‘‘Administrative Provisions, Forest Service’’ in title III of the 

Department of the Interior, Environment, and Related Agencies Appropriations Act, 2006, Public Law 109–

54, is amended by striking ‘‘2009’’ and inserting ‘‘2014’’.]

1. Provision not needed. Authority has been extended through 2014.

GENERAL PROVISIONS (INCLUDING TRANSFERS OF FUNDS)

LIMITATION ON CONSULTING SERVICES

SEC. 401. The expenditure of any appropriation under this Act for any consulting service through 

procurement contract, pursuant to 5 U.S.C. 3109, shall be limited to those contracts where such expenditures 

are a matter of public record and available for public inspection, except where otherwise provided under 

existing law, or under existing Executive Order issued pursuant to existing law.

RESTRICTION ON USE OF FUNDS

SEC. 402. No part of any appropriation contained in this Act shall be available for any activity or the 

publication or distribution of literature that in any way tends to promote public support or opposition to any 

legislative proposal on which Congressional action is not complete other than to communicate to Members of 

Congress as described in 18 U.S.C. 1913.

OBLIGATION OF APPROPRIATIONS

SEC. 403. No part of any appropriation contained in this Act shall remain available for obligation beyond the 

current fiscal year unless expressly so provided herein.

PROHIBITION ON USE OF FUNDS FOR PERSONAL SERVICES

SEC. 404. None of the funds provided in this Act to any department or agency shall be obligated or expended 

to provide a personal cook, chauffeur, or other personal servants to any officer or employee of such 

department or agency except as otherwise provided by law.

DISCLOSURE OF ADMINISTRATIVE EXPENSES

1.

SEC. 405. Estimated overhead charges, deductions, reserves or holdbacks from programs, projects, activities 

and subactivities to support government-wide, departmental, agency or bureau administrative functions or 

headquarters, regional or central operations shall be presented in annual budget justifications[ and subject to 

approval by the Committees on Appropriations]. [Changes] Advance notice of changes to such estimates 

shall be presented to the Committees on Appropriations [for approval].

1. Provision unnecessarily restricts agency discretion.

GIANT SEQUOIA

1.

SEC. 406. None of the funds in this Act may be used to plan, prepare, or offer for sale timber from trees 

classified as giant sequoia (Sequoiadendron giganteum) which are located on National Forest System or 

Bureau of Land Management lands in a manner different than such sales were conducted in fiscal year [2009]

2010.

1. Updates year
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-9

[TRANSFER OF FUNDS AUTHORITY]

1. [SEC. 407. None of the funds made available in this Act may be transferred to any department, agency, or 

instrumentality of the United States Government except pursuant to a transfer made by, or transfer provided in, 

this Act or any other Act.]

2. Removes provision.

MINING APPLICATIONS

1. SEC. [408] 407. (a) LIMITATION OF FUNDS.—None of the funds appropriated or otherwise made available 

pursuant to this Act shall be obligated or expended to accept or process applications for a patent for any 

mining or mill site claim located under the general mining laws. (b) EXCEPTIONS.—The provisions of 

subsection (a) shall not apply if the Secretary of the Interior determines that, for the claim concerned: (1) a 

patent application was filed with the Secretary on or before September 30, 1994; and (2) all requirements 

established under sections 2325 and 2326 of the Revised Statutes (30 U.S.C. 29 and 30) for vein or lode claims 

and sections 2329, 2330, 2331, and 2333 of the Revised Statutes (30 U.S.C. 35, 36, and 37) for placer claims, 

and section 2337 of the Revised Statutes (30 U.S.C. 42) for mill site claims, as the case may be, were fully 

complied with by the applicant by that date. (c) REPORT.—On September 30, 2010, the Secretary of the 

Interior shall file with the House and Senate Committees on Appropriations and the Committee on Natural 

Resources of the House and the Committee on Energy and Natural Resources of the Senate a report on actions 

taken by the Department under the plan submitted pursuant to section 314(c) of the Department of the Interior 

and Related Agencies Appropriations Act, 1997 (Public Law 104–208). (d) MINERAL EXAMINATIONS.—

In order to process patent applications in a timely and responsible manner, upon the request of a patent 

applicant, the Secretary of the Interior shall allow the applicant to fund a qualified third-party contractor to be 

selected by the Bureau of Land Management to conduct a mineral examination of the mining claims or mill 

sites contained in a patent application as set forth in subsection (b). The Bureau of Land Management shall 

have the sole responsibility to choose and pay the third party contractor in accordance with the standard 

procedures employed by the Bureau of Land Management in the retention of third-party contractors.

1. Changes section number.

CONTRACT SUPPORT COSTS

1. Sec. [409] 408. Provision not applicable to the Forest Service.

1. Changes section number.

FOREST MANAGEMENT PLANS

1. SEC. [410] 409. The Secretary of Agriculture shall not be considered to be in violation of subparagraph 

6(f)(5)(A) of the Forest and Rangeland Renewable Resources Planning Act of 1974 (16 U.S.C. 1604(f)(5)(A)) 

solely because more than 15 years have passed without revision of the plan for a unit of the National Forest 

System. Nothing in this section exempts the Secretary from any other requirement of the Forest and Rangeland 

Renewable Resources Planning Act (16 U.S.C. 1600 et seq.) or any other law: Provided, That if the Secretary 

is not acting expeditiously and in good faith, within the funding available, to revise a plan for a unit of the

National Forest System, this section shall be void with respect to such plan and a court of proper jurisdiction 

may order completion of the plan on an accelerated basis.

1. Changes section number.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-10

PROHIBITION WITHIN NATIONAL MONUMENTS

1. SEC. [411]410. No funds provided in this Act may be expended to conduct preleasing, leasing and related 

activities under either the Mineral Leasing Act (30 U.S.C. 181 et seq.) or the Outer Continental Shelf Lands 

Act (43 U.S.C. 1331 et seq.) within the boundaries of a National Monument established pursuant to the Act of 

June 8, 1906 (16 U.S.C. 431 et seq.) as such boundary existed on January 20, 2001, except where such 

activities are allowed under the Presidential proclamation establishing such monument.

1. Changes section number.

INTERNATIONAL FIREFIGHTER COOPERATIVE AGREEMENTS

1.

2.

SEC. [412] 411. In entering into agreements with foreign fire organizations pursuant to the Temporary 

Emergency Wildfire Suppression Act (42 U.S.C. 1856m–1856o), the Secretary of Agriculture and the 

Secretary of the Interior are authorized to enter into reciprocal agreements in which the individuals furnished 

under said agreements to provide wildfire services are considered, for purposes of tort liability, employees of 

the fire organization receiving said services when the individuals are engaged in fire suppression or 

presuppression: Provided, That the Secretary of Agriculture or the Secretary of the Interior [shall] should not 

enter into any agreement under this provision unless the foreign fire organization agrees to assume any and all 

liability for the acts or omissions of American firefighters engaged in fire suppression or presuppression in a 

foreign country: Provided further, That when an agreement is reached for furnishing fire suppression or 

presuppression services, the only remedies for acts or omissions committed while engaged in fire suppression 

or presuppression shall be those provided under the laws applicable to the fire organization receiving the fire 

suppression or presuppression services, and those remedies shall be the exclusive remedies for any claim 

arising out of fire suppression or presuppression activities in a foreign country: Provided further, That neither 

the sending country nor any legal organization associated with the firefighter shall be subject to any legal 

action, consistent with the applicable laws governing sovereign immunity, pertaining to or arising out of the 

firefighter’s role in fire suppression or presuppression, except that if the foreign fire organization is unable to 

provide immunity under laws applicable to it, it shall assume any and all liability for the United States or for 

any legal organization associated with the American firefighter, and for any and all costs incurred or assessed, 

including legal fees, for any act or omission pertaining to or arising out of the firefighter’s role in fire 

suppression or presuppression.

1. Changes section number.

2. Removes restriction on agreements and foreign liability.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-11

CONTRACTING AUTHORITIES

1. SEC. [413]412. In awarding a Federal contract with funds made available by this Act, notwithstanding Federal 

Government procurement and contracting laws, the Secretary of Agriculture and the Secretary of the Interior 

(the ‘‘Secretaries’’) may, in evaluating bids and proposals, give consideration to local contractors who are

from, and who provide employment and training for, dislocated and displaced workers in an economically 

disadvantaged rural community, including those historically timber-dependent areas that have been affected by 

reduced timber harvesting on Federal lands and other forest-dependent rural communities isolated from

significant alternative employment opportunities: Provided, That notwithstanding Federal Government 

procurement and contracting laws the Secretaries may award contracts, grants or cooperative agreements to 

local non-profit entities, Youth Conservation Corps or related partnerships with State, local or non-profit youth 

groups, or small or micro-business or disadvantaged business: Provided further, That the contract, grant, or 

cooperative agreement is for forest hazardous fuels reduction, watershed or water quality monitoring or 

restoration, wildlife or fish population monitoring, or habitat restoration or management: Provided further, 

That the terms ‘‘rural community’’ and ‘‘economically disadvantaged’’ shall have the same meanings as in 

section 2374 of Public Law 101– 624: Provided further, That the Secretaries shall develop guidance to 

implement this section: Provided further, That nothing in this section shall be construed as relieving the 

Secretaries of any duty under applicable procurement laws, except as provided in this section.

1. Changes section number.

LIMITATION ON TAKINGS

1.

2.

SEC.[ 414]413. Unless otherwise provided herein, no funds appropriated in this Act for the acquisition of 

lands or interests in lands may be expended for the filing of declarations of taking or complaints in 

condemnation without the [approval] prior notification of the House and Senate Committees on 

Appropriations: Provided, That this provision shall not apply to funds appropriated to implement the

Everglades National Park Protection and Expansion Act of 1989, or to funds appropriated for Federal 

assistance to the State of Florida to acquire lands for Everglades restoration purposes.

1. Changes section number.

2. Provision unnecessarily restricts agency discretion.

[HUNTERS POINT ENVIRONMENTAL CLEANUP]

1. [SEC. 415. Provision not applicable to the Forest Service.]

1. Removes provision.

EXTENSION OF GRAZING PERMITS

1. SEC. [416]414. The terms and conditions of section 325 of Public Law 108–108, regarding grazing permits at 

the Department of the Interior and the Forest Service shall remain in effect [or fiscal year [2010] 2011.

1. Changes section number.

2. Extends authority.

[NATIONAL COUNCIL ON THE ARTS MEMBERSHIP]

1. [Sec. 417. Provision not applicable to the Forest Service.]

1. Removes provision.

[NATIONAL CAPITAL ARTS AND CULTURAL AFFAIRS AUTHORIZATION]

1. [Sec. 418. Provision not applicable to the Forest Service.]

1. Removes provision.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-12

[ALASKA NATIVE HEALTH CARE SERVICES]

1. [Sec. 419. Provision not applicable to the Forest Service.]

1. Removes provision.

[EXTENSION OF FOREST BOTANICAL PRODUCT AUTHORITIES]

1. [SEC. 420. Section 339(h) of the Department of the Interior and Related Agencies Appropriations Act, 2000, 

as amended, concerning a pilot program for the sale of forest botanical products by the Forest Service, is 

further amended by striking ‘‘September 30, 2009’’ and inserting ‘‘September 30, 2014’’.]

1. Provision no longer needed. Authority has been extended through 2014.

[TIMBER SALE REQUIREMENTS]

1. [SEC. 421. The Forest Service shall use the residual value approach to appraising all timber sales in Alaska’s 

Region 10 that contain a component of Western red cedar and shall only offer sales that contain a component 

of Western red cedar that are not deficit. Western red cedar shall be appraised using lower 48 State domestic 

values if the timber might be eligible for shipment to the lower 48 States. All of the Western red cedar timber 

from those sales which is surplus to the needs of domestic processors in Alaska shall be made available to 

domestic processors in the contiguous 48 United States at prevailing domestic prices in the contiguous 48 

United States. Western red cedar shall be deemed ‘‘surplus to the needs of domestic processors in Alaska’’ if 

the Forest Service determines it is surplus or if the timber sale holder has presented to the Forest Service 

documentation that the Forest Service determines is valid of the inability to sell Western red cedar logs from a 

given sale to domestic Alaska processors at a price equal to or greater than the log selling value stated in the 

contract. All additional Western red cedar volume not sold to Alaska or to contiguous 48 United States 

domestic processors may be exported to foreign markets if the Forest Service determines it is surplus to the 

needs of the 50 States. All Alaska yellow cedar may be sold at prevailing export prices if the Forest Service 

determines it is surplus to the needs of the 50 States.]

1. Removes provision.

[COLORADO COOPERATIVE CONSERVATION AUTHORITY]

1. [SEC. 422. Section 331(e) of the Department of the Interior and Related Agencies Appropriations Act, 2001, 

(Public Law 106– 291), as added by section 336 of division E of the Consolidated Appropriations Act, 2005 

(Public Law 108–447), concerning cooperative forestry agreements known as the Colorado Good Neighbor 

Act Authority is amended by striking ‘‘September 30, 2009’’ and inserting ‘‘September 30, 2013’’.]

1. Provision no longer needed. Authority has been extended through 2013.

[GEOTHERMAL ENERGY RECEIPTS]

1. [Sec. 423. All monies received by the United States in fiscal year 2010 from sales, bonuses, rentals, 

and royalties under the Geothermal Steam Act of 1970 shall be disposed of as provided by section 

20 of that Act (30 U.S.C. 1019), as in effect immediately before the enactment of the Energy Policy 

Act of 2005 (Public Law 109-58), and without regard to the amendments contained in sections 

224(b) and section 234 of the Energy Policy Act of 2005 (42 U.S.C. 17673).

1. Removes provision.

[PROHIBITION ON USE OF FUNDS (CLEAN AIR ACT)]

1. [Sec. 424. Provision not applicable to the Forest Service.]

1. Removes provision.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-13

[GREENHOUSE GAS REPORTING RESTRICTIONS (MANURE)]

1. [Sec. 425. Provision not applicable to the Forest Service.]

1. Removes provision.

[REPORT ON USE OF CLIMATE CHANGE FUNDS]

1. [SEC. 426. Not later than 120 days after the date on which the President’s fiscal year 2011 budget request is 

submitted to Congress, the President shall submit a report to the Committee on Appropriations of the House of 

Representatives and the Committee on Appropriations of the Senate describing in detail all

Federal agency obligations and expenditures, domestic and international, for climate change programs and 

activities in fiscal year 2009 and fiscal year 2010, including an accounting of expenditures by agency with 

each agency identifying climate change activities and associated costs by line item as presented in the 

President’s Budget Appendix.]

1. Removes provision.

PROHIBITION ON USE OF FUNDS (ACORN)

1. Sec. [427]415. Provision not applicable to the Forest Service.

1. Changes Section Number

[GUANTANAMO BAY DETAINEES, FUNDING RESTRICTIONS]

1. [Sec. 428. Provision not applicable to the Forest Service.]

1. Removes provision.

[JUNGO DISPOSAL SITE EVALUATION (USGS)]

1. [Sec. 429. Provision not applicable to the Forest Service.]

1. Removes provision.

[BUYOUT AND RELOCATION (EPA)]

1. [Sec. 430. Provision not applicable to the Forest Service.]

1. Removes provision.

[AGRICULTURAL RESEARCH AUTHORIZATION]

1. [SEC. 431. Section 404(c) of the Agricultural Research, Extension, and Education Reform Act of 1998 (7 

U.S.C. 7624(c)) is amended— (1) in paragraph (1), by striking ‘‘Agricultural Research Service’’ and inserting 

‘‘Agricultural Research Service and the Forest Service’’; and (2) by adding at the end the following: ‘‘(3) 

AUTHORITY OF SECRETARY.—To carry out a cooperative agreement with a private entity under 

paragraph (1), the Secretary may rent to the private entity equipment, the title of which is held by the Federal 

Government.’’.]

1. Removes provision.

[NATIONAL FOREST FOUNDATION]

1. [SEC. 432. Section 403(a) of the National Forest Foundation Act (16 U.S.C. 583j–1(a)) is amended, in the first 

sentence, by striking ‘‘fifteen Directors’’ and inserting ‘‘not more than 30 Directors’’.]

1. Provision no longer needed. National Forest Foundation Act amended.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-14

CABIN USER FEES

1. [SEC. 433. Notwithstanding any other provision of law, none of the funds made available by this or any other 

Act may be used by the Secretary of Agriculture to increase a recreation residence user fee for calendar year 

2010 by more than 25 percent of the recreation residence user fee applicable to the recreation residence for 

calendar year 2009.]

1. Provision no longer necessary. Provided a 25 percent limitation on fee increases for 

recreation residences for calendar year 2010.

PROHIBITION ON NO-BID CONTRACTS

1. SEC. [434]416. None of the funds appropriated or otherwise made available by this Act to executive branch 

agencies may be used to enter into any Federal contract unless such contract is entered into in accordance with 

the requirements of the Federal Property and Administrative Service Act of 1949 (41 U.S.C. 253) or chapter

137 of title 10, United States Code, and the Federal Acquisition Regulations, unless: (1) Federal law 

specifically authorizes a contract to be entered into without regard for these requirements, including formula 

grants for States, or federally recognized Indian tribes; or (2) such contract is authorized by the Indian SelfDetermination and Education and Assistance Act (Public Law 93– 638, 25 U.S.C. 450 et seq., as amended) or 

by any other Federal laws that specifically authorize a contract within an Indian tribe as defined in section 4(e) 

of that Act (25 U.S.C. 450b(e)); or (3) such contract was awarded prior to the date of enactment of this Act.

1. Changes section number.

POSTING OF REPORTS

1. SEC. [435]417. (a) Any agency receiving funds made available in this Act, shall, subject to subsections (b) 

and (c), post on the public website of that agency any report required to be submitted by the Congress in this 

or any other Act, upon the determination by the head of the agency that it shall serve the national interest. (b) 

Subsection (a) shall not apply to a report if— (1) the public posting of the report compromises national

security; or (2) the report contains proprietary information. (c) The head of the agency posting such report 

shall do so only after such report has been made available to the requesting Committee or Committees of 

Congress for no less than 45 days.

1. Changes section number.

[NATIONAL CONSERVATION AREA MAP AMENDMENT]

1. [SEC. 436. Provision not applicable to the Forest Service]

1. Removes provision.

[TAR CREEK SUPERFUND SITE]

[Sec. 437. Provision not applicable to the Forest Service.]

1. Removes provision.

NATIONAL ENDOWMENT FOR THE ARTS GRANT GUIDELINES

1. Sec. [438]418. Provision not applicable to the Forest Service.

1. Changes section number.
FY 2011 Budget Justification USDA Forest Service

Appropriation Language Changes 4-15

NATIONAL ENDOWMENT FOR THE ARTS PROGRAM PRIORITIES

1. Sec. [439]419. Provision not applicable to the Forest Service.

1. Changes section number.

[ENERGY AND WATER DEVELOPMENT, TECHNICAL CORRECTION]

1. [Sec. 440. Provision not applicable to the Forest Service.]

1. Removes provision.

AWARDS TO FOR-PROFIT ENTITIES

1.

2.

SEC.[441]420.[ Specific projects contained in]To the extent that the report of the Committee on 

Appropriations of the House of Representatives accompanying this Act [(H. Rept. 111–180)]includes specific 

projects that are considered congressional earmarks for purposes of clause 9 of rule XXI of the Rules of the 

House of Representatives, such projects, when intended to be awarded to a for-profit entity, shall be awarded 

under a full and open competition.

1. Changes section number.

2. Extends authority.

[PROHIBITION ON USE OF FUNDS (EPA)]

1. [Sec. 442. Provision not applicable to the Forest Service.]

1. Removes provision.

[AUTHORIZATION FOR REFINANCING (EPA)]

1. [Sec. 443. Provision not applicable to the Forest Service.]

1. Removes provision.

[INCORPORATION OF CONGRESSIONALLY REQUESTED PROJECTS]

[SEC. 444. Within the amounts appropriated in this Act, funding shall be allocated in the amounts specified 

for those projects and purposes delineated in the table titled ‘‘Incorporation of Congressionally Requested 

Projects’’ included in the joint explanatory statement of the managers accompanying this Act, except that such

funding appropriated for land acquisition, construction, and capital improvement and maintenance may be 

reallocated to other projects in that table funded by the same appropriation account if such reallocation has 

been approved by the House and Senate Committees on Appropriationsand, such funding appropriated for

‘‘National Park Service—Historic Preservation Fund’’ for Save America’s Treasures grants may be 

reallocated to be used for competitive grants under the Save America’s Treasures program if such reallocation 

has been approved by the House and Senate Committees on Appropriations.]

1. Removes provision.

1. Sec. 421. Provision not applicable to the Forest Service.

1. Adds provision.
FY 2011 Budget Justification USDA Forest Service

Forest and Rangeland Research 5-1

Appropriation Forest and Rangeland Research

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Forest & Rangeland Research

Annual Appropriations $296,380 $312,012 $3,042 -$10,700 $304,354 -3%

Forest & Rangeland Research Total $296,380 $312,012 $3,042 -$10,700 $304,354 -3%

Annual Appropriation FTEs 2,049 2,055 2,055

Total Full-Time Equivalents (FTEs) 2,049 2,055 2,055

Forest & Rangeland Research Activities

Wildland Fire & Fuels R&D $28,646 $23,605 $229 -$460 $23,374 -2%

Invasive Species R&D $35,464 $37,463 $366 -$1,298 $36,531 -3%

Recreation R&D $4,940 $5,177 $51 -$104 $5,124 -2%

Resource Management & Use $88,878 $100,762 $980 -$1,970 $99,772 -2%

Water, Air & Soil R&D $36,442 $36,136 $353 -$1,146 $35,343 -3%

Wildlife & Fish R&D $31,609 $30,467 $297 -$903 $29,861 -3%

Inventory & Monitoring R&D $9,631 $11,463 $113 $181 $11,757 2%

Forest Inventory & Analysis $60,770 $66,939 $653 -$5,000 $62,592 -7%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Forest & Rangeland Research

Customer satisfaction index score for R&D 72 72 72 75 75 75

Number of patent applications filed (3-year 

average) 12 11 6 6 6 6

Percent of R&D programs that have been externally 

peer-reviewed within the last 5 years 25% 50% 75% 100% 100% 100%

Number of R&D programs that have been 

externally peer-reviewed within the last 5 years 2 2 6 8 8 8

Percent of peer-reviewed R&D programs that 

achieve a rating of satisfactory or excellent during 

the last 5 years 100% 100% 100% 100% 100% 100%

Percent of Nation with accessible FIA data 84% 88% 92% 92% 92% 92%

Quality Science Index - peer-reviewed fire science 

publications per scientist year on a 3-year rolling 

average 3.5 3.5 3.5 3.5 3.5 3.5

Output Efficiency Index - total fire science products 

per scientist year on a 3-year rolling average 5.1 5.0 5.1 5.0 5.0 5.0

Invasive species tools developed, delivered and 

used on a 5-year rolling average 171 170 180 177 163 163

Cost per invasive species tool on a 5-year running 

average adjusted for budgets $242,000 $238,000 $207,000 $198,000 $426,000 $426,000

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $304,354,000 for Forest and Rangeland Research, a program 

decrease of $10,700,000 from FY 2010. These funds are used for seven strategic program areas, listed as 

activities in the table above. The budget includes $61,939,000 for the Forest Inventory and Analysis

program, a program decrease of $5,000,000 from FY 2010.
FY 2011 Budget Justification USDA Forest Service

Forest and Rangeland Research 5-2

Climate Change Focus Area

Within each strategic program area, some funding in the President’s FY 2011 Budget is designated to 

support climate change and in support of the Secretary’s vision to restore landscapes to a condition 

resilient to climate changes.

Forest Service Research & Development builds on existing expertise in areas such as landscape ecology, 

watershed hydrology, vegetation modeling, nutrient cycling, and forest management to conduct climate 

change research. In FY 2011, funds will continue research to address key issues facing the Nation’s 

forests and rangelands. Specific research areas include monitoring and modeling of carbon dioxide 

cycling in forests and woodlands, vegetation management techniques to enhance carbon sequestration, 

enhancing ecosystem sustainability and adaption to change, improving methods to estimate carbon in 

ecosystems, and advancing biomass feedstock management and conversion technology for biofuels 

production. In addition, the President’s Budget provides $1.5 million for a comprehensive carbon 

inventory for forest ecosystems. (see Special Exhibit- Chapter 16)

Strategic Program Areas

Wildland Fire and Fuels Research & Development (R&D)1

FY 2011 Program Changes 

The request includes $23,374,000 to support wildland fire and fuels research and development, a decrease 

of $460,000 from FY 2010. Funding will remain sufficient for higher priority projects, such as the 

Mapped Atmosphere-Plant-Soil System (MAPSS). The MAPSS Fire Forecasting System accurately 

forecasts total area to be burned and total fire fighting expenditures before and during the fire season. 

Past Performance

In FY 2009, Forest Service Research developed and delivered more than 220 timely publications dealing 

with wildland-fire topics, such as ecological and environmental fire science, integrated fire and fuels 

management, public interactions with fire and fuels management, socio-economic aspects of fires and 

fuels management, and organizational effectiveness. Science delivery and applications for policy makers, 

wildland-fire managers, and local communities ensure that knowledge generated by the Forest Service is 

transferred to communities and adopted. One notable highlight is the creation of MAPSS. The MAPSS 

models are significantly better at predicting total seasonal expenditures than the old method for 

predicting, which relied primarily on professional judgment. Currently, MAPSS provides new fire 

forecasts each month to over 200 land managers from various resource agencies. In April 2009, MAPSS 

was used to create the 2009 fire season’s “Significant Fire Potential Forecast.” 

In FY 2009, Forest Service R&D launched the National Fire Decision Support Center to develop new risk 

assessment tools to improve decision science and management decisions to provide focused support for 

decision making on all large and long-duration Forest Service wildland fires. This single focal point will 

support the agency goal of large-fire cost reduction by providing improved and consistent decision 

support for all large and potentially large wildland fires, improving capability to make strategic decisions 

through a directed research program, and increasing agency awareness and use of decision support 

 1 Forest Service Research and Development manages a total of $ $55,443,000 for fire research. Forty-two percent of this is under Forest and 

Rangeland Research (narrative above). The other 58 percent is funded through the Wildland Fire Management (WFM) appropriation under the 

National Fire Plan ($24,060,000) and under the Joint Fire Sciences Program ($8,009,000), with narratives in the WFM section of this document.
FY 2011 Budget Justification USDA Forest Service

Forest and Rangeland Research 5-3

information for risk-informed decision making. One example tool is our Wildland Fire Decision Support 

System, which has been used on approximately 6,500 incidents and is available for use by federal land 

management agencies.

Program Overview

The Wildland Fire and Fuels strategic program area provides the knowledge and tools needed to help 

reduce the negative impacts, and enhance the beneficial effects, of fire and fuels on society and the 

environment. The program has five major focus areas: 1) understanding and modeling fundamental fire 

processes, 2) interactions of fire with ecosystems and the environment, 3) social and economic aspects of 

fire, 4) evaluation of integrated management strategies and disturbance interactions at multiple scales, and 

5) application of fire research to address management problems.

The information and tools developed through this program will assist managers and policy makers in 

making cost-effective and environmentally-sound fire management decisions that sustain and enhance 

resource values and minimize negative impacts. Tools, knowledge, and science from Wildland Fire and 

Fuels research enables fire managers to develop science-based policy and to practice science-based fire 

management that results in reduced losses to society from fire and improves the resilience and 

sustainability of wildland ecosystems. 

Invasive Species R&D 

FY 2011 Program Changes

The request includes $36,531,000 for invasive 

species research and development, a decrease of 

$1,298,000 from FY 2010. Funding will be reduced 

for low priority pests and invasive species to 

maintain sufficient funding for high priority needs. 

Past Performance

In FY 2009, the Forest Service developed and 

delivered 177 tools used by customers. The highly 

diverse tools included the successful establishment 

and release in Michigan of two parasites of emerald 

ash borer; methods to detect the presence of 

invasive plants in Hawaiian rainforests using 

airborne imaging spectroscopy and Light Detection 

and Ranging (LiDAR); methods to predict how well 

biological control agents will work under the 

influence of climate change; and a synthesis titled 

“Fire and Nonnative Invasive Plants.” 

Forest Service R&D is considered a global leader in its research on ways to control major forest pests like 

emerald ash borer, hemlock woolly adelgid, and gypsy moth. In FY 2009, information based on FS 

science findings led the International Plant Protection Convention to revise its guidelines for regulating 

wood packaging material used in international trade. This action averted the European Union’s ban on 

using wood with bark in shipping while still effectively preventing introductions of new insects and 

pathogens. 

Sudden Oak Death Symposium

Forest Service R&D hosted the 4th Sudden Oak 

Death Science (SOD) Symposium, where over 200 

attendees shared the latest science findings. The 

many SOD publications and newsletters produced—

as well as training sessions and seminars—provide 

information critical to regulators, land managers, 

scientists, nurserymen, homeowners, and others 

working to prevent, manage, or mitigate the impacts 

of this invasive pathogen.
FY 2011 Budget Justification USDA Forest Service

Forest and Rangeland Research 5-4

Program Overview

The Invasive Species strategic program area provides the scientific information, methods, and technology 

to reduce, minimize, or eliminate the introduction, establishment, spread, and impact of invasive species, 

and to restore ecosystems affected by invasives. This research focuses on plants, animals, fish, insects, 

diseases, invertebrates, and other species that are not native to a particular ecosystem and whose 

introduction causes or is likely to cause economic or environmental harm. Customers use this Forest 

Service technology and knowledge to prevent, detect, and manage important invasive species and 

restore/rehabilitate the function and diversity of impacted ecosystems.

Recreation R&D

FY 2011 Program Changes

The request includes $5,124,000 for recreation research and development, a decrease of $104,000 from 

FY 2010. This level of funding will enable many of the current programs to continue.

Past Performance

Forest Service R&D, with partners, published studies 

on techniques to estimate resource damage from allterrain vehicles (ATV) and management strategies to 

reduce resource damage while allowing for multiple 

uses of public lands. 

To help address issues associated with rapid growth 

and large-scale development of open space, Forest 

Service scientists developed a tool to help local

organizations, including local governments, prioritize 

large contiguous areas for conservation and 

restoration and to understand the financial 

implications of their choices. In one case, FS 

scientists used this tool in Kane County, IL to 

identify the desirable areas of grassland habitat that 

could be protected for minimum cost as well as the financial implications of increasing the habitat area 

protected.

Program Overview

The Outdoor Recreation strategic program area is directed at understanding and managing outdoor 

environments, activities, and experiences that connect people with the natural world. This research 

program develops the knowledge and tools to support informed recreation and wilderness management 

decisions that improve outdoor recreation opportunities for current and future generations while 

sustaining healthy ecosystems.

Restoring Community Ecosystems in New 

York City

The Research and Development mission area is 

helping restore the natural environment in 

neighborhoods, parks, gardens, wetlands and 

forest ecosystems which span across five of New 

York City’s boroughs. Forest Service scientists, 

in cooperation with a wide-range of partners, are 

helping improve the understanding of the 

relationships between community restoration, 

public health and urban natural resources. The 

linkages among climate change, health, and trees 

and healthy urban forests are critical features of 

the New York City project.
FY 2011 Budget Justification USDA Forest Service

Forest and Rangeland Research 5-5

Resource Management and Use R&D

FY 2011 Program Changes

The request includes $99,772,000 for resource management and use research and development, a decrease 

of $1,970,000 from FY 2010. Funding will be redirected from lower priority projects to maintain 

sufficient funding for higher priority needs. $1,000,000 will be used to prepare a comprehensive carbon 

inventory for forest ecosystems. This effort will lead to a baseline from which FS can gauge how best to 

to reduce the loss of forest carbon sinks. 

Past Performance

In FY 2009, Forest Service R&D continued to make 

investments in sustainable production systems 

development, improving feedstock production for 

biofuels and bioproducts, life cycle assessments that

include environmental outcomes, and biomass 

conversion technologies and co-products development. 

Program Overview

The Resource Management and Use strategic program 

area provides the scientific and technological base to 

sustainably manage and use forest resources and forest 

fiber-based products. Focus areas include plant 

science, soil science, social science, silviculture, 

productivity, forest and range ecology and 

management, forest harvesting and operations, forest 

and biomass products and utilization, economics, 

urban forestry, and climate change.

Water, Air, and Soil R&D

FY 2011 Program Changes

The request includes $35,343,000 for water, air, and soil research and development, a decrease of 

$1,146,000 from FY 2010. Funding will be redirected from lower priority projects to maintain sufficient 

funding for higher priority needs. Funding will continue for the Chesapeake Watershed Forestry 

Program. This program helps to improve coordination among organizations, and provides educational, 

financial, and technical assistance.

Past Performance

Forest Service R&D and partners developed the CarbonPlus Calculator to help people estimate their 

carbon dioxide emissions. It provides tips on how to reduce carbon footprints; and learn about the many 

benefits trees provide in addition to absorbing carbon. Each participating city or location can customize 

the calculations to improve the accuracy of estimates compared to national averages. Designed originally 

for the general public, the new 2009 version of the calculator adds features specifically for businesses and 

government agencies to identify ways to reduce their emissions. 

Going to Bat for Major League Baseball

Breakage of bats during play has become a 

safety concern for Major League Baseball. 

Through research efforts funded by MLB, a 

Forest Service scientist determined that the slope 

of the grain in the Maple baseball bat was a 

primary contributor to breakage and multiplepiece fractures. Researchers made a 

recommendation to MLB officials, and by 

implementing the recommendations, the rate of 

multiple-piece failures dropped by 30% in 2009.
FY 2011 Budget Justification USDA Forest Service

Forest and Rangeland Research 5-6

Scientists also developed and evaluated a 

satellite burned area mapping algorithm to 

support air quality forecasting and emission 

inventory development. The burned area data 

is being used to develop wildland fire emission 

inventories. Expected outcomes facilitated by 

this research include 1) improved state 

compliance with federal air quality standards; 

2) improved forecasting of air quality; 3) 

feasible strategies for improving visibility in 

National Forests, Wilderness Areas, and Parks. 

Program Overview

The Water, Air, and Soil strategic program 

area enables the sustainable management of 

these essential resources by providing 

information on how to clean air and drinking 

water, protect lives and property from wildfire

and smoke, and improve our ability to adapt to 

climate variability and change. The program 

area studies ecosystem services with a high 

level of integration between water, air, and soil 

research. It pays particular attention to the 

effects of climate variability and change on 

water budgets.

Wildlife and Fish R&D

FY 2011 Program Changes

The request includes $29,861,000 for wildlife and fish research and development, a decrease of $903,000 

from FY 2010. Funding will be redirected from lower priority projects to maintain sufficient funding for

higher priority needs.

Past Performance

Forest Service R&D scientists have documented new discoveries about the importance of headwater 

streams to critical food webs supporting native fish productivity in aquatic systems in the Pacific 

Northwest. This knowledge will increase the success of restoration projects for important native fisheries 

such as the threatened bull trout. It will also allow managers to better select sites for restoration where 

there will be a higher rate of success for supporting native fish. 

A mega-population analysis was conducted of coffee agroecosystems in Mexico and several 

Mesoamerican countries to evaluate the relationship between ant and bird diversity and several types of 

vegetation management strategies for coffee production. The study results showed that ant and bird 

diversity declined with management intensification and with changes in vegetation.

New Forest Soil Disturbance Monitoring Protocol

Forest Service scientists developed and tested 

techniques resulting in the new Forest Soil Disturbance 

Monitoring Protocol, which gives soil scientists the 

information needed to design site appropriate 

mitigation, develop prescriptions to meet multiple 

resource objectives, and help achieve sustainable forest 

management by working to identify areas at risk from 

certain types of management. The authors were 

recognized as the National Field Soil Scientists of the 

Year for their work on this protocol.
FY 2011 Budget Justification USDA Forest Service

Forest and Rangeland Research 5-7

Forest Service scientists at the International 

Institute of Tropical Forestry report results that 

can be used to protect bird and ant populations in 

these environments, by protecting native forests 

and modifying coffee cultivation. This research 

can help coffee growers develop coffee 

landscapes that both sustain farmer livelihoods 

and conserve biodiversity.

Program Overview

The Wildlife and Fish strategic program area 

relies upon interdisciplinary research to inform 

policy initiatives affecting wildlife and fish habitat 

on private and public lands and the recovery of 

threatened or endangered species. Scientists in 

this program area investigate the complex 

interactions among species, ecosystem dynamics 

and processes, land use and management, and 

emerging broad-scale threats, including global 

climate change, loss of open space, invasive 

species, and disease.

Inventory and Monitoring R&D

FY 2011 Program Changes

Inventory and Monitoring is comprised of Resource Data and Analysis and Forest Inventory and Analysis 

(FIA). The request includes $12,410,000 for Resource Data and Analysis, an increase of $181,000 above

FY 2010; and $61,939,000 for FIA, a decrease of $5,000,000 from FY 2010.

The decrease of $5,000,000 from FY 2010 for the FIA program will continue annualized inventory in 46 

States which includes partial support for New Mexico. Funding for FIA in Nevada, Wyoming, Hawaii, 

and interior Alaska is discontinued. Five-year reports will continue to be produced on schedule for fully 

implemented States and online data availability will continue at FY 2009 levels. $500,000 will be used to 

prepare a comprehensive carbon inventory for forest ecosystems. This effort will lead to a baseline from 

which FS can gauge how best to reduce the loss of forest carbon sinks.

Past Performance

In FY 2009, FIA continued its use of program-level accomplishment data, as well as program costs, to 

manage and improve program efficiency and to allocate funds to field programs. At the level of national 

performance measures, the FIA program met its goal of having 92% of data (less than 2 years old) 

accessible on line: http://199.128.173.26/fido/index.html

Last year this program published Forest Resources of the United States, 2007 which is part of the

Congressional mandate of the Forest and Rangeland Renewable Resources Planning Act of 1974 (16 

U.S.C. 1601). This report provides critical information on the condition, status, and trends in the Nation’s 

752 million acres of forests to provide comprehensive resource data to inform resource managers, 

researchers, NGOs, industries and State and Federal policy makers. 

Crayfishes of Mississippi

Forest Service scientists at the Bottomland Hardwood 

Center are leading an effort to make information about 

Mississippi crayfish available to both the general 

public and scientists. For interactive maps showing 

distribution of species, photographs for help in 

identifying species and factsheets about each species, 

see: http:maps.fs.fed.us/crayfish 
FY 2011 Budget Justification USDA Forest Service

Forest and Rangeland Research 5-8

A website, http://www.fia.fs.fed.us/program-features/rpa/default.asp, allows users access to the document 

as well as its tables in Excel format. FIA updated the “Forest Facts” brochure and published it in four 

languages (Spanish, French, Russian, and Chinese) for distribution at 2009 World Forestry Congress. 

More detailed information about FIA past performance can be found in the FIA Annual Business Report 

at http://www.fia.fs.fed.us/library/bus-org-documents/default.asp. 

Program Overview

The Inventory and Monitoring strategic program area provides the resource data, analysis, and tools 

needed to identify current status and trends of forests, management options and impacts, and threats from 

fire, insects, disease, and other natural processes, enhancing the use and value of our Nation’s forests and 

grasslands. Assessing current and potential effects of climate change depends on the monitoring of forest 

ecosystems at greatest risk to rapid change. Focus areas include the development and use of integrated 

interdisciplinary science, technologies, and remote sensing to increase the timeliness and spatial 

resolution of incidence of forest fragmentation, insect outbreaks, diseases, fires, and extreme weather 

events.

Data from our monitoring efforts are used everyday to assess sustainability, to make important business 

decisions, to evaluate wildlife habitat, and for many other things. National, State, and local policy makers, 

universities, businesses, tribal governments, national forests and other natural resource agencies, interest 

groups—and many others—depend on our data for timely, scientifically credible information about our 

forest. An important component of monitoring is gaining a clear understanding of what has happened in 

the past. Combining FIA data and disturbance maps from time-series Landsat imagery joins the statistical 

rigor of a field-based inventory with the spatial and temporal disturbance trends. The maps produced 

through North American Forest Dynamics Project methodologies offer the opportunity to communicate 

the timing, area, and intensity of fires, harvests, and other disturbances. This provides a clearer 

understanding of forest dynamics over the last several decades.

Forest Service Research and Development (R&D) provides scientific information and new technologies 

to support sustainable management of the Nation’s forests and rangelands. These products and services 

increase the basic biological and physical knowledge of the composition, structure, and function of forest, 

rangeland, and aquatic ecosystems. Forest Service R&D is federally mandated to provide new knowledge 

and technologies to foster healthy watersheds, forest products, wildlife protection, outdoor recreation 

opportunities, and other benefits, across all U.S. territories and States (including both Federal and nonFederal lands). Research is conducted at five research stations, the Forest Products Laboratory, and the 

International Institute of Tropical Forestry located in Puerto Rico. There are approximately 500 scientists 

at 67 sites located throughout the United States.

Forest Service Research and Development Program Overview

The Research program is structured around 3 components: foundations, emerging research areas, and 

strategic program areas. The foundations consist of Forest Inventory and Analysis (FIA) and 

Experimental Forests and Ranges (including long-term urban research areas). Each of the foundations 

rely on long-term, land-based monitoring to provide data for current research needs and provide a 

valuable data archive for future research needs. The emerging research areas are Climate Change; 

Biomass and Bioenergy; Urban Natural Resources Stewardship; Watershed Management and Restoration; 

and Nanotechnology. These emerging areas, which represent a commitment to timely and relevant 

research, rest on the foundations, and on the core capacity reflected in the strategic program areas.
FY 2011 Budget Justification USDA Forest Service

Forest and Rangeland Research 5-9

The Forest Service R&D budget is organized around the seven Strategic Program Areas that align with 

the goals and objectives of the Forest Service 2007-2012 Strategic Plan. These seven strategic areas are 

Wildland Fire and Fuels; Invasive Species; Outdoor Recreation; Resource Management and Use; Water, 

Air, and Soil; Wildlife and Fish; and Inventory and Monitoring.

Forest Service R&D priorities are based on the agency’s mission, direction from Congress, and Executive 

Branch priorities. The base R&D program is established using input from the field. The research stations, 

Forest Products Laboratory, and International Institute of Tropical Forestry prioritize research in response 

to local and regional needs. Field requests are reviewed, coordinated with critical needs identified at the 

national level, and then merged into a national research program. Funds are distributed to support the 

seven strategic program areas. R&D is integrated into Agency and Departmental programs through joint 

strategic planning, Budget Performance Integration, and various boards and agreements that focus 

research toward integrated outcomes.

Allocation and Integration

Forest Service R&D partners include Federal and State agencies, universities, industry, nongovernmental 

organizations, tribal groups, and foreign government research cooperators. One of the most important 

functions of Forest Service Research is the distribution of information to forest managers and users 

implementing land management projects. The agency provides valuable technology transfer to our 

research partners, land management practitioners, State agencies, urban planners, private forest owners, 

private organizations, horticultural organizations, agricultural interests, as well as forest practitioners 

internal to the Forest Service. Seeking and forging strategic partnerships is a critical activity of Forest 

Service R&D.

Partnerships
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-1

Appropriation State and Private Forestry

The FY 2011 President’s Budget proposes $321,593,000 for programs under the State and Private 

Forestry appropriation, a program increase of $12,250,000 from FY 2010. 

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

State & Private Forestry

Annual Appropriations $265,861 $308,061 $1,282 $12,250 $321,593 4%

Supplemental & Emergency Funding $0 $0 $0 $0 $0

State & Private Forestry Total $265,861 $308,061 $1,282 $12,250 $321,593 4%

Annual Appropriation FTEs 598 571 571

Supplemental & Emergency Funding FTEs 3 0 0

Total Full-Time Equivalents 601 571 571

State & Private Forestry

Forest Health Management - Federal Lands $54,110 $57,282 $683 -$1,800 $56,165 -3%

Forest Health Management - Cooperative Lands $46,292 $48,573 $90 -$2,750 $45,913 -6%

State Fire Assistance $35,000 $39,147 $110 -$4,000 $35,257 -10%

Volunteer Fire Assistance $6,000 $7,000 $0 $0 $7,000 0%

Forest Stewardship Program $27,000 $29,369 $147 $0 $29,516 0%

Forest Legacy Program $49,445 $75,960 $50 $24,100 $100,110 32%

Community Forest & Open Space Conservation $0 $500 $0 $500 $1,000 100%

Urban & Community Forestry $29,541 $30,377 $101 $1,950 $32,428 6%

Economic Action Programs $4,973 $5,000 $0 -$5,000 $0 -100%

Forest Resources Information & Analysis $5,000 $5,035 $33 $0 $5,068 0%

International Forestry $8,500 $9,818 $68 -$750 $9,136 -8%

State and Private Forestry Programs

State and Private Forestry (S&PF) provides technical and financial assistance to landowners and resource 

managers to help sustain the Nation’s urban and rural forests, and to protect communities and the 

environment from wildland fires, insects, disease, and invasive plants. Through a coordinated effort in 

management, protection, conservation education, and resource use, S&PF programs help facilitate sound 

stewardship of lands across all ownerships on a landscape scale, while maintaining the flexibility for 

individual forest landowners to pursue their objectives. S&PF programs play a key role, along with the 

National Forest System, Forest and Rangeland Research, and the Department of the Interior, in 

implementing the National Fire Plan to manage the impacts of wildland fires on communities and the 

environment. Funds in the S&PF appropriation also provide funding for the International Forestry

program. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-2

Redesigning State and Private Forestry

During FY 2011, the State and Private Forestry Redesign 

effort will be in its fourth year implementing a 

progressive strategy to focus and prioritize funds and 

resources to better shape and influence forest land use on 

a scale, and in a way, that optimizes public benefits from 

trees and forests for current and future generations. 

Statewide Assessments of Forest Resource Conditions 

are an integral part of the S&PF Redesign and are 

required in the Forestry Title of the 2008 Farm Bill. To 

receive Cooperative Forestry Assistance Act funds, the 

Farm Bill requires States to complete their assessments 

by June 2010.

In FY 2011 the Redesign will continue to advance the Forest Service’s mission to sustain the Nation’s 

forests, with at least 15 percent of net available funds (not including earmarks and national commitments) 

in the Forest Health Management - Cooperative Lands, State Fire Assistance, Forest Stewardship, and 

Urban and Community Forestry programs planned to be allocated through the Redesign’s competitive 

process. These competitive allocations focus investments on three themes: conserve working forest 

landscapes, protect forests from harm, and enhance public benefits associated with trees and forests. 

National and State assessment tools developed as part of the Redesign are at or near completion and will 

help identify conditions and issues requiring S&PF resources, further refining competitive allocations. 

As required by Congressional Direction, the following table displays the allocation of funding to SPF 

Redesign in FY 2009: 

FY 2009 Funding for SPF Redesign Projects

Program Funding

Forest Health Management, Cooperative Lands, SPF $ 4,713,000

Forest Health Management, Cooperative Lands, NFP $ 790,000

State Fire Assistance, SPF $ 3,621,000

State Fire Assistance, NFP $ 2,411,000

Forest Stewardship $ 6,290,000

Urban and Community Forestry $ 3,813,000

Total $ 21,638,000

S&PF Program Leverages 

$22 Million in FY 2009

In FY 2009, S&PF competitively allocated

$19.21 million to State Foresters, supporting 

142 projects in 47 states (as well as 3 Pacific 

Islands and Puerto Rico). These allocations 

enabled the Forest Service to leverage almost 

$22 million in partner dollars and in-kind 

contributions. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-3

Forest Health Management

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Forest Health Management

Annual Appropriations $100,402 $105,855 $773 -$4,550 $102,078 -4%

Forest Health Management Total $100,402 $105,855 $773 -$4,550 $102,078 -4%

Annual Appropriation FTEs 373 344 344

Total Full-Time Equivalents (FTEs) 373 344 344

Forest Health Management

Forest Health Management - Federal Lands $54,110 $57,282 $683 -$1,800 $56,165 -3%

Forest Health Management - Cooperative Lands $46,292 $48,573 $90 -$2,750 $45,913 -6%

The Forest Health Management (FHM) program utilizes science, land management, and technology 

transfer expertise to restore and sustain forest landscapes – across urban, private, State, Tribal, and 

Federal forests. Preventing, detecting, and suppressing insect, disease, and invasive plant outbreaks 

makes forest landscapes, and the communities that depend on them, more resilient to climate change.

Allocations are based upon level of risk as defined in the National Insect and Disease Risk Map 

(NIDRM), current pest locations and abundances, and other factors that include cost-effectiveness, 

probability of successfully implementing a treatment, and ability to conduct necessary environmental 

compliance. Forest health treatments are aligned with other staff activities, such as hazardous fuels and 

forest management. In addition, projects are undertaken using an all-lands approach, working across 

land ownerships whenever possible. 

NIDRM identifies acres at risk from more than 50 different pest agents and highlights acres where 

mortality exceeds 25 percent (predicted mortality over the next 15 years) from these agents. The current 

risk map identifies, in descending order of impact, the following pests: mountain pine beetle (highest), 

oak decline, southern pine beetle, root diseases, and gypsy moth. In FY 2010, the Forest Service 

committed additional funds to address public safety concerns and forest health needs arising from the 

millions of acres of dead and dying trees from bark beetle infestations in the West. In FY 2011 the Forest 

Service will continue to fund management actions to reduce forest susceptibility to beetle outbreaks and 

protect high value trees. In coordination with partners and stakeholders, the Forest Service will direct 

funds to the areas that have been experiencing tree mortality as a result of bark beetle infestations to focus 

our response more aggressively. 

The allocations proposed in the FY 2011 Budget focus on treatments for mountain pine beetle and 

southern pine beetle which directly reduce present and future beetle levels by either suppression or 

prevention techniques. Gypsy moth (fifth on the risk list) is funded for eradication, suppression, and 

prevention (the slow-the-spread (STS) program), to prevent new infestations. STS is a highly effective, 

scientifically-based program that reduces the rate of spread into non-infested areas by 50 percent. 

To assist in future evaluation of the effects of climate change, field units will continue to document the 

occurrence of damage caused by forest insects, tree diseases, and invasive plants outside their expected 

geographic range; changes in the population dynamics of host preferences of pests; and other changes in 

pest activity caused by climatic conditions. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-4

Program Budget Line Items

The FHM program has four budget line items, two in the State and Private Forestry appropriation, for 

Federal Lands and Cooperative Lands, and two in the Wildland Fire Management appropriation, for 

Federal Lands and Cooperative Lands, related to the National Fire Plan. The portions related to the 

National Fire Plan are detailed in the Wildland Fire Management chapter.

Forest Health Management-Federal Lands: FHM activities on Federal lands are carried out in 

cooperation with the National Forest System, other Federal agencies and Tribal governments. These 

activities optimize efficiency in executing a coordinated Federal program to detect, monitor, evaluate, 

prevent, and suppress insects and disease, and restore Federal forestlands. 

Forest Health Management-Cooperative Lands: FHM activities on cooperative lands are carried out in 

cooperation with States and territories. These activities optimize efficiency in executing a coordinated 

program to restore forestlands damaged by insects, disease, and invasive plants on lands owned by States, 

local governments, private organizations, and individual land owners.

The following funding chart is based on current information about insect and disease outbreaks. The 

actual distribution is likely to change once additional survey information is collected. Other factors that 

could change the allocation include completion of necessary NEPA documentation or local contractor 

availability. 

Selected Insects, Diseases, and Invasive Plants

Program Discretionary Appropriations Funding by Fiscal Year (thousands)

R&D (Research Appropriation)

S&PF (S&PF and WFM Appropriations)

FY 2009 

Enacted

FY 2010

Enacted

FY 2011

Pres. Budg.

Asian Longhorned Beetle (Total) $347 347 297

 R&D $147 147 147

 S&PF $200 200 150

Douglas-fir Tussock Moth S&PF 34 1,500 34

Emerald Ash Borer (Total) $3,923 4,923 2,928

 R&D $1,428 1,428 1,428

 S&PF $2,495 3,495 1,500

Gold Spotted Oak Borer, 1k Canker Disease, 

Laurel Wilt S&PF 0 600 300

Gypsy Moth (Total) $16,719 25,664 20,584

 R&D $1,624 1,624 1,624

 S&PF $15,095 12,020 9,480

 Slow-the-spread $8,095 10,500 8,530

 Suppression $6,900 1,500 900

 Eradication $100 20 50

Hemlock Woolly Adelgid (Total) $4,423 5,423 4,173

 R&D $1,923 1,923 1,923

 S&PF $2,500 3,500 2,250

Invasive Plants (Total) $7,306 8,806 7,306

 R&D $3,306 3,306 3,306

 S&PF $4,000 5,500 4,000
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-5

Selected Insects, Diseases, and Invasive Plants

Program Discretionary Appropriations Funding by Fiscal Year (thousands)

R&D (Research Appropriation)

S&PF (S&PF and WFM Appropriations)

FY 2009 

Enacted

FY 2010

Enacted

FY 2011

Pres. Budg.

Oak Wilt (Total) $725 725 723

 R&D $125 125 125

 S&PF $600 600 600

Port Orford-Cedar Root Disease S&PF $189 189 189

Sirex Woodwasp (Total) $479 479 379

 R&D $229 229 229

 S&PF $250 250 150

Southern Pine Beetle (Total) $10,446

 R&D $2,046 2,046 2,046

 S&PF $8,400 8,900 7,500

Subterranean Termites R&D $886 886 866

Sudden Oak Death (Total) $4,152 4,152 4,152

 R&D $2,552 2,552 2,552

 S&PF $1,600 1,600 1,600

Western Bark Beetles (Total) $13,191 12,691 10,507

 R&D $1,507 1,507 1,507

 S&PF $11,684 11,184 9,000

Whitebark Pine Pests S&PF $150 150 150

White Pine Blister Rust (Total) $1,125 1,125 1,125

 R&D $575 575 575

 S&PF $550 550 550

Sub-Totals

 R&D $16,348 16,348 16,348

 S&PF $47,747 49,238 37,713

TOTAL $64,095 65,586 54,061
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-6

Budget Line Item Forest Health Management 

 Federal Lands

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Forest Health Management - Federal Lands

Annual Appropriations $54,110 $57,282 $683 -$1,800 $56,165 -3%

Forest Health Management - Federal Lands Total $54,110 $57,282 $683 -$1,800 $56,165 -3%

Annual Appropriation FTEs 312 304 304

Total Full-Time Equivalents (FTEs) 312 304 304

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Forest Health Management - Federal Lands

Federal acres treated - Invasives 111,600 60,029 154,169 164,495 172,930 168,408

Federal acres treated - Native pests 26,846 49,136 27,156 171,220 177,512 174,925

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $56,165,000 for Forest Health Management-Federal Lands, a 

program decrease of $1,800,000 from FY 2010. Compared to FY 2010, the Forest Service will reduce 

monitoring and treatments in some efforts such as the slow-the-spread program for gypsy moth and for 

work on hemlock woolly adelgid. Available funds will be used to conduct forest insect and disease 

surveys to provide technical assistance; to conduct forest insect and disease prevention, suppression, 

restoration, and eradication projects; and to monitor forest health on all Federal lands including those of 

the Departments of Defense and the Interior. Funding is provided to highest priority activities that can 

demonstrate performance in a transparent manner.

The request includes funding to meet the highest priority prevention and suppression needs for southern 

pine beetle, western bark beetles, oak wilt, root diseases, and hemlock woolly adelgid; and slowing the 

spread, eradication of new outbreaks, and suppression of gypsy moth on forests and grasslands managed 

by the Forest Service, other Federal agencies, and tribal governments. The request continues funding for 

the Eastern Forest Environmental Threat Assessment Center to provide information on how multiple 

threats interact with pests, focusing on the effects of climate change. Funding for the Western Wildland 

Environmental Threat Assessment Center is included in the request for the National Fire Plan Forest 

Health Management-Federal Lands program within the Wildland Fire Management appropriation.

In FY 2010, the Forest Service committed additional funds to address public safety concerns and forest 

health needs arising from the millions of acres of dead and dying trees from bark beetle infestations in the 

West. In FY 2011, the Forest Service will continue to fund management actions to reduce forest 

susceptibility to beetle outbreaks and protect high value trees. In coordination with partners and 

stakeholders, the Forest Service will direct funds to the areas that have been experiencing tree mortality as 

a result of bark beetle infestations to more aggressively focus our response. 

Past Performance

In FY 2009, the Forest Service and other Federal agencies treated native pest species on 171,220 acres 

and non-native invasive species on 164,495 acres. Treatment areas for native pests, such as the southern 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-7

Southern Pine Beetle (SPB)

The SPB Prevention and Restoration Program is 

a proactive strategy to minimize the impact of 

the South’s most devastating native pest. The 

Forest Health Protection program has 

cooperated with states and National Forests to 

reduce the risk of SPB on more than 800,000 

acres since 2003. Over 8,000 forest landowners 

have received cost-shared assistance. The FHM 

program uses 30-meter resolution SPB hazard 

maps to prioritize projects, optimizing Forest 

Service financial assistance to achieve the 

greatest landscape-level impact.

pine beetle and western bark beetle, focused on high priority large-scale watersheds. For invasive pests, 

priority treatments focused on slowing the advance of the gypsy moth infestation from North Carolina to 

Wisconsin. The program also continued to protect critical forest ecosystems from non-native insects and 

diseases, such as Port Orford-cedar root disease, white pine blister rust, and hemlock woolly adelgid. 

Moreover, the program addressed the threats of relatively new non-native invasive pests such as the 

emerald ash borer, Sirex wood wasp, and sudden oak death. 

Targets are based on the previous year’s unit costs, current year funding, and the relative risk to forests. 

The program allocates funds based on pests posing the greatest risks, e.g. mountain pine beetle, southern 

pine beetle, and gypsy moth. In FY 2009, the significant increase in acres accomplished over the planned 

target for native species is attributed to changes in pest conditions, treatments methods, and lower unit 

costs. The accomplishment also includes integrated acres, or those acres protected during projects for 

which forest health was not the primary resource management objective, such as hazardous fuel treatment

projects. Also, final accomplishments include acres protected as a result of projects funded under the 

American Recovery and Restoration Act.

Program Description

Program Overview

The Forest Health Management – Federal Lands 

program monitors and assesses both short-term and 

long-term forest health conditions across the Nation. 

Funds support three primary purposes: to conduct pest 

surveys and provide technical assistance; to conduct 

prevention, suppression, restoration, and eradication 

projects; and to monitor the health of the Nation’s 

forests. These investments provide for detection, 

monitoring, evaluation, prevention, and suppression of 

forest insects and diseases on forestlands managed by 

the Forest Service, other Federal agencies, and Tribal 

governments. For invasive plants, the Forest Health 

Management program primarily provides technical 

assistance to Federal land managers. 

Identifying priority treatment areas reduces the potential for new outbreaks. Treatments protect priority 

areas from damaging insects and disease, reduce the risks of mortality from wildland fire, and prevent 

future outbreaks by increasing the resilience of treated areas. 

Allocation and Integration

Annual priorities for mitigating the risk of future and current outbreaks are based, in large part, on the 

findings from NIDRM, which is informed by current pest conditions and locations. Prevention and 

suppression programs for major pests such as the gypsy moth, western pine beetle, and southern pine 

beetle are directly related to the relative risk of these pests, areas currently experiencing pest outbreaks, 

and the availability of cost-effective treatment technologies. Some forest health pests, such as southern 

pine beetle, can be more easily treated than others, such as beech bark disease. 

Some of the techniques used to determine the most optimal areas for treatment include overlaying 

national map layers using Geographic Information Systems (GIS) for insect and disease, fire, watershed 

condition, and wildland-urban interface. The spatial placement and sequencing of treatments on National 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-8

Forest System lands are planned and coordinated with other Forest Service vegetation management 

program areas, such as hazardous fuels reduction and forest management through the “Sustainable 

Landscape Management” Board of Directors, a group of Directors from State and Private Forestry 

(Forest Health Protection, and Fire and Aviation Management), Research and Development (Forest 

Management Sciences), and National Forest System (Forest Management, Range Management, and 

Watershed, Fish, Wildlife, Air, and Rare Plants). This coordination optimizes on-the-ground treatment

and improves the overall health of forestlands across the landscape and ownerships. 

Partnerships

This program funds the detection, evaluation, and suppression of forest insect and disease pests on lands 

managed by all other Federal agencies and Tribal governments. Where proposed treatment locations are 

adjacent to other Federal lands or non-Federal lands, treatment scheduling is coordinated with non-Forest 

Service partners to optimize improvements to forest health across landownership boundaries. 

The STS Gypsy Moth program works seamlessly across all landownerships in a collaborative, all-lands

partnership. This program has significantly reduced the spread of gypsy moth by over 50 percent.
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-9

Budget Line Item Forest Health Management 

Cooperative Lands 

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Forest Health Management - Cooperative Lands

Annual Appropriations $46,292 $48,573 $90 -$2,750 $45,913 -6%

Forest Health Management - Cooperative Lands Total $46,292 $48,573 $90 -$2,750 $45,913 -6%

Annual Appropriation FTEs 61 40 40

Total Full-Time Equivalents (FTEs) 61 40 40

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Forest Health Management - Cooperative Lands

Cooperative lands acres treated - Invasives 589,298 580,629 859,039 690,807 554,440 455,966

Cooperative lands acres treated - Native pests 134,346 152,440 121,324 105,952 104,805 75,735

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $45,913,000 for Forest Health Management–Cooperative 

Lands, a program decrease of $2,750,000 from FY 2010. Compared to FY 2010, the Forest Service will 

reduce monitoring and treatments in some efforts such as the slow-the-spread program for gypsy moth 

and for work on hemlock woolly adelgid. Available funds will used to provide technical and financial 

assistance to State forestry agencies and State Departments of Agriculture to conduct forest insect and 

disease surveys to provide technical assistance; to conduct prevention, suppression, restoration, and 

eradication projects for forest insects, diseases, and invasive plants; and to monitor forest health on State 

and private lands. Funding is provided to highest priority activities that can demonstrate performance in a 

transparent manner. 

The program will fund the highest priority prevention and suppression needs associated with southern 

pine beetle, hemlock woolly adelgid, and oak wilt; and fund slowing the spread, eradication of new 

outbreaks, and suppression of gypsy moth on non-Federal lands. The request includes funding to 

continue the use of Early Detection and Rapid Response efforts to find invasive insects and diseases 

early, thereby reducing future costs to address pest outbreaks.

In FY 2010 the Forest Service committed additional funds to address public safety concerns and forest 

health needs arising from the millions of acres of dead and dying trees from bark beetle infestations in the 

West. In FY 2011 the Forest Service will continue to fund management actions to reduce forest 

susceptibility to beetle outbreaks and protect high value trees. In coordination with partners and 

stakeholders, the Forest Service will direct funds to the areas that have been experiencing tree mortality as 

a result of bark beetle infestations to more aggressively focus our response. 

Past Performance

In FY 2009, the Forest Service treated native pest species on 105,952 acres and non-native invasive 

species on 690,807 acres of State and private lands. Treatment areas for native pests such as the southern 

pine beetle and western bark beetle focused on the highest priority large-scale watersheds. Priority 

treatments for non-native invasive pests focused on the advancing front of gypsy moth on State and 

private lands from North Carolina to Wisconsin. The program continued to protect critical forest 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-10

ecosystems from non-native insects and diseases, such as Port Orford-cedar root disease, white pine 

blister rust, hemlock woolly adelgid, and invasive plants. The program also continued to mitigate the 

threats of relatively new invasive pests such as the emerald ash borer, Sirex woodwasp, and sudden oak 

death.

Targets are based on the previous year’s unit costs, current year funding, and the risk to forests. The 

program allocates based on pests posing the greatest risks, e.g. mountain pine beetle, southern pine beetle, 

and gypsy moth. In FY 2009, the increase in acres accomplished over the target for native species is 

attributed to changes in pest conditions, treatment methods, and lower unit costs as well as inclusion of 

integrated acres protected during projects funded whose main purpose was other resource management 

objectives such as hazardous fuel treatments. Also, final accomplishments include acres protected as a 

result of projects funded under the American Recovery and Restoration Act. In addition, the agency’s 

target for invasive species was based on Federal funds being available for cooperative gypsy moth 

suppression projects well before States needed to commit to suppression contracts. Because the Forest 

Service was not able to issue grants until the full-year appropriations was enacted in February, several 

States were not able to commit to gypsy moth suppression contracts at the level they would have if 

Federal funds had been available earlier in the contract preparation process. Therefore, accomplishments 

were about nine percent below the target level.

Program Description

Program Overview

The Forest Health Management – Cooperative Lands program provides technical and financial assistance 

to States and territories to monitor, assess, and mitigate forest health conditions on non-Federal lands 

across the Nation. Treatments protect priority acres from damaging insects, diseases, and invasive plants; 

reduce the risks of mortality from wildland fire; protect highly valued sites; and prevent future outbreaks 

by increasing the resilience of the vegetation in treated areas. Funds support three primary purposes to 

conduct pest surveys and provide technical assistance; to conduct prevention, suppression, restoration, 

and eradication projects; and to monitor the health of the Nation’s forests.

The Forest Service uses risk maps to select insect and disease project locations for prevention work and 

aerial and ground survey techniques to identify suppression treatments. Treatment placements 

incorporate local priorities including high-value timber stands, wildland-urban interface areas, municipal 

water supply areas, outdoor recreational sites, and administrative sites.

Allocation and Integration

Annual priorities for mitigating the risk of future outbreaks are based, in large part, on the findings from 

NIDRM, which is informed by current surveys of pest conditions. Some pests, such as southern pine 

beetle, are more easily mitigated through management compared to others, such as oak decline. The 

Forest Service is working to align more closely identified risk with allocation, using an all-lands 

approach.

The program works with the Forest Health Management-Federal Lands program to identify priority lands 

and manage forest insects and diseases across the landscape. Prevention and suppression costs are shared 

with States and other non-Federal partners on a 1:1 basis. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-11

Partnerships

This program provides technical and financial assistance to State forestry agencies and Territories to 

detect, evaluate, and suppress forest insects, diseases, and invasive plant pests on non-Federal lands. 

When proposed treatment locations are adjacent 

to National Forest System lands or other Federal 

lands, treatment scheduling is coordinated to 

optimize improvements to forest health across

landownership boundaries. Partnerships leverage 

Federal financial assistance with non-Federal 

resources to implement programs and projects 

that protect forest resources and improve the 

health of the Nation’s forests.

Program activities are also coordinated closely 

with the Animal and Plant Health Inspection 

Service and State Departments of Agriculture to 

detect and monitor introductions of new invasive 

species such as the emerald ash borer, Asian 

long-horned beetle, and sudden oak death. 

The Slow-the-Spread Gypsy Moth program is a strong partnership with State agencies, which is 

successfully slowing the spread of gypsy moth by over 50 percent.

Emerald Ash Borer (EAB)

The Forest Service partners with other land 

management agencies to help forest landowners and 

communities mitigate the impacts of EAB. The Forest 

Health Protection Program and its partners develop 

and support the popular informational website 

http:www.emeraldashborer.info/, develop and 

distribute brochures and identification material, 

engage Master Gardeners and citizens in building 

awareness of EAB, and develop a web-based EAB 

University. Methods development work continues to

search for effective bio-control agents of EAB. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-12

Budget Line Item Cooperative Fire Protection

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Cooperative Fire Protection

Annual Appropriations $41,000 $46,147 $110 -$4,000 $42,257 -9%

Cooperative Fire Protection Total $41,000 $46,147 $110 -$4,000 $42,257 -9%

Annual Appropriation FTEs 49 49 49

Total Full-Time Equivalents (FTEs) 49 49 49

Cooperative Fire Protection

State Fire Assistance $35,000 $39,147 $110 -$4,000 $35,257 -10%

Volunteer Fire Assistance $6,000 $7,000 $0 $0 $7,000 0%

Cooperative Fire Protection provides technical and financial assistance to States and local fire agencies to 

promote efficient wildland fire protection on Federal, State, and private lands. Program activities are 

focused on mitigating hazards, reducing wildland fire risk to homes in the wildland-urban interface 

(WUI), and reducing Federal wildland fire suppression costs. Cooperative Fire Protection consists of two 

activities: State Fire Assistance and Volunteer Fire Assistance. See the following pages for a detailed 

description of these programs.
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-13

Budget Line Item Cooperative Fire Protection

State Fire Assistance 

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

State Fire Assistance

Annual Appropriations $35,000 $39,147 $110 -$4,000 $35,257 -10%

State Fire Assistance Total $35,000 $39,147 $110 -$4,000 $35,257 -10%

Annual Appropriation FTEs 48 49 49

Total Full-Time Equivalents (FTEs) 48 49 49

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

State Fire Assistance

Communities assisted (number) 4,290 16,658 11,569 6,896 1,345 1,197

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $35,257,000 for State Fire Assistance (SFA), a program 

decrease of $4,000,000 from FY 2010. These funds are matched and will be used to assist 1,197 

communities with training, planning, hazardous fuel treatments and the purchase and maintenance of 

equipment. Enhancing State and local fire protection organizations’ capacity to be effective first 

responders in wildland fire initial attack operations is critical to reducing the risk of large, costly, 

catastrophic wildfires. It should be noted that in the past several fiscal years the State Fire Assistance 

program has received significant amounts of supplemental funding from Congress outside of the 

traditional appropriations process. These funds were unanticipated during the budget justification 

process, and therefore were not considered in planning accomplishment levels. The Forest Service is 

considering adopting a separate accomplishment tracking process to reflect accomplishments achieved by

supplemental funding.

Projects are planned, completed and entered into the performance database by each State and are not 

under the direct control of the Forest Service. To help ensure focus on the highest priority projects, the 

agency issues program direction encouraging the States to focus the funds on areas covered by 

Community Wildfire Protection Plans (CWPPs) or other collaboratively developed hazard mitigation 

plans. Depending on the State’s priorities and fluctuations in fire danger, the number of projects and 

communities assisted may vary significantly from year to year. The Forest Service will work with State 

Foresters to establish guidance to set standards that are to be met as a condition of award for community 

grant recipients.

Past Performance

In FY 2009, SFA funding provided through State and Private Forestry appropriations assisted 6,896 

communities through funding for a variety of different activities. Additional SFA accomplishments are 

reported under the Wildland Fire Management – Fire Operations – Other budget line item. State and 

Private Forestry accomplishments include funding the training of over 16,000 firefighters. Over 6,400 

prevention and education programs were conducted, benefiting over 3,500 communities. Approximately 

$3 million was invested in the purchase, maintenance, and rehabilitation of needed firefighting 

equipment. SFA funding also provided over $3 million in funding to support suppression operations and 

support, such as dispatch centers. Additionally, assistance was provided to over 4,600 communities in the 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-14

form of risk assessments, fire prevention programs, fire management planning, and hazardous fuel 

mitigation projects. Actual accomplishment figures do fluctuate from year to year depending on the types 

and cost of individual projects the States choose to implement. For example, if some States’ priority 

projects are relatively expensive then they will accomplish fewer projects and therefore assist fewer 

overall communities. However, if the States spread the funds across a larger number of communities to 

accomplish priority projects that are less expensive, then the total number of communities assisted will be 

larger. The Forest Service strongly encourages States to focus their efforts on high priority projects and 

demonstrate their performance in a transparent manner. 

Program Description 

Program Overview

The SFA program provides matching financial assistance through partnership agreements to State 

Foresters for all fire management activities including preparedness activities, planning, training, 

hazardous fuel treatments, and the purchase and maintenance of equipment. Funding enables State and 

local fire protection organizations to be effective first responders for initial attack on wildland fires and to 

respond effectively to all types of disasters. These funds also support the Smokey Bear fire prevention 

program. The Forest Service is now also tracking the number of “Communities at Risk.” State Foresters 

report to the Forest Service the number of communities in which their efforts have reduced risk. After 

negotiation with the State Foresters, “Communities Assisted” was determined to be the best 

accomplishment measure for SFA given the variety of programs needs and uses. 

Allocation and Integration

Following the advent of the National Fire Plan, SFA program activities are funded through two different 

budget line items, one as part of State and Private Forestry and the other as part of Wildland Fire 

Management, Fire Operations - Other. A base level of funding is distributed to the State Foresters in 

order for all 50 States to maintain and enhance coordination and communication with Federal agencies, as 

well as supply needed performance data. Remaining funds are allocated to each State based on acres of 

non-Federal land, population, and level of fire protection required. Program funding is used for critical 

preparedness needs including firefighter safety, enhanced initial attack capability, and training. State 

Foresters make determinations about how to target funding to the highest priority needs identified in their 

State. 

Partnerships

State Fire Assistance delivers its program through partnerships with States, local agencies, local 

communities, and other organizations such as Fire Safe Councils, in coordinating wildland fire 

suppression and response to other types of natural disasters.
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-15

Budget Line Item Cooperative Fire Protection

Volunteer Fire Assistance

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Volunteer Fire Assistance

Annual Appropriations $6,000 $7,000 $0 $0 $7,000 0%

Volunteer Fire Assistance Total $6,000 $7,000 $0 $0 $7,000 0%

Annual Appropriation FTEs 1 0 0

Total Full-Time Equivalents (FTEs) 1 0 0

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Volunteer Fire Assistance

Volunteer fire departments assisted (number) 3,062 10,157 5,591 4,255 2,600 2,600

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $7,000,000 for the Volunteer Fire Assistance (VFA) program, 

the same amount as the FY 2010 budget. These funds are matched and are planned to provide financial 

assistance to 2,600 volunteer fire departments in rural communities with populations of less than 10,000 

people. The actual number of volunteer fire departments assisted and the type of work that is 

accomplished depends on specific projects selection selected by each State. 

Past Performance

In FY 2009, the Forest Service provided VFA funding to 4,255 communities. Funding helped with the 

training of over 9,600 firefighters; the organization or expansion of over 200 fire departments; and the 

purchase, rehabilitation, and maintenance of over $4.2 million dollars of equipment. 

Actual numbers of volunteer fire departments assisted will fluctuate from year to year depending on the 

types and cost of individual projects the States choose to implement. For example, if some States’ 

priority projects are relatively expensive then they will accomplish fewer projects and, therefore, assist 

fewer overall communities. However, if the States spread the funds across a larger number of 

communities to accomplish priority projects that are less expensive, then the total number of communities 

assisted will be larger. The Forest Service strongly encourages the States to focus their efforts on high 

priority projects and demonstrate their performance in a transparent manner.

Program Description 

Program Overview

Through the VFA program, the Forest Service provides technical and financial assistance to local 

communities - through the States - to protect State and private forestlands threatened by wildfire. VFA is 

for communities with populations of less than 10,000 individuals. The assistance and funding provides for 

training, development, organization, and equipment. Local fire agencies are the first line of defense for 

the initial attack on wildland fires, and therefore play a key role in meeting expanded fire protection needs 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-16

within the Wildland-Urban Interface (WUI). Through this program the Forest Service provides support to 

respond to natural and human-caused disasters in rural America.

Allocation and Integration

Since the advent of the National Fire Plan, VFA program activities are funded through two different 

budget line items, State and Private Forestry and Wildland Fire Management, Fire Operations - Other. 

The program allocates funding based on acres of forestland to be protected and the number of fire 

departments serving communities with populations under 10,000 in each State. This formula provides a 

fixed percentage of funds to the regions, the Northeastern Area, and the International Institute of Tropical 

Forestry.

Partnerships

The VFA program directly supports local fire suppression initial attack efforts by providing technical 

assistance grants for training and fire department development. The program provides equipment for 

wildland fire suppression to rural volunteer fire departments serving communities with populations of less 

than 10,000.
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-17

Cooperative Forestry

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Cooperative Forestry

Annual Appropriations $115,959 $146,241 $331 $21,550 $168,122 15%

Cooperative Forestry Total $115,959 $146,241 $331 $21,550 $168,122 15%

Annual Appropriation FTEs 148 148 148

Total Full-Time Equivalents (FTEs) 148 148 148

Cooperative Forestry

Forest Stewardship Program $27,000 $29,369 $147 $0 $29,516 0%

Forest Legacy Program $49,445 $75,960 $50 $24,100 $100,110 32%

Community Forest & Open Space Conservation $0 $500 $0 $500 $1,000 100%

Urban & Community Forestry $29,541 $30,377 $101 $1,950 $32,428 6%

Economic Action Programs $4,973 $5,000 $0 -$5,000 $0 -100%

Forest Resources Information & Analysis $5,000 $5,035 $33 $0 $5,068 0%

Cooperative Forestry promotes working in partnership with States, tribal governments, communities, and 

private landowners to improve management and protection of forests and use of forest-based goods and 

services while building civic capacity to achieve long-term goals for sustainable development. 

The Cooperative Forestry programs are Forest Stewardship Program, Forest Legacy Program, Urban and 

Community Forestry Program, Economic Action Programs, Community Forest and Open Space 

Conservation Program, and Forest Research Information and Analysis. Descriptions of these programs 

can be found on the following pages.
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-18

Budget Line Item Cooperative Forestry

Forest Stewardship Program

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Forest Stewardship Program

Annual Appropriations $27,000 $29,369 $147 $0 $29,516 0%

Forest Stewardship Program Total $27,000 $29,369 $147 $0 $29,516 0%

Annual Appropriation FTEs 62 66 66

Total Full-Time Equivalents (FTEs) 62 66 66

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Forest Stewardship Program

Percentage of nonindustrial private forest 

acres in important forest resource areas being 

managed sustainably, as defined by a current 

Forest Stewardship Plan N/A 0.5% 1.8% 2.6% 10.0% 10.0%

Acres of nonindustrial private forest land that 

are being managed sustainably under forest 

stewardship management plans. (Annual) 1,760,000 1,715,206 1,888,904 2,076,447 2,000,000 2,250,000

Acres of nonindustrial private forest land that 

are being managed sustainably under forest 

stewardship management plans. (Cumulative) 15,133,689 16,848,895 18,737,799 18,582,449 22,000,000 23,500,000

Note: Output measures include acres managed under current forest stewardship management plans only; as plans expire they are 

not always renewed, resulting in the slight drop seen in the cumulative measure in FY 2009.

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $29,516,000, for the Forest Stewardship Program, the same as 

the FY 2010 budget. The Program’s focus and impact will be significantly enhanced by the completion of 

Statewide Assessments and Resource Strategies, continued implementation of other 2008 Farm Bill 

initiatives, better coordination with program delivery partners, landowner peer-to- peer networks, and 

information technology advances. Expanding upon the Forest Stewardship Spatial Analysis Project 

(SAP), Statewide Assessments and Resource Strategies will enable States to focus and coordinate 

program delivery to produce cumulative, landscape-scale, measurable impacts, with multi-landowner, 

multi-partner planning and technical assistance efforts. In addition, Statewide Assessments will help 

States identify and address opportunities resulting from emerging ecosystem service and biomass energy 

markets, and focus program assistance to conserve a “green infrastructure” of interconnected, viable 

forested landscape areas.

All Forest Stewardship plans will consider the possible near and long-term impacts of climate change, 

including increased fire risk, invasive species migration and species range and habitat shifts. Where 

appropriate and feasible, management plans will include actions to mitigate adverse impacts and define a 

more dynamic desired future forest function. 

The Forest Service will continue to work with the Natural Resources Conservation Service, the American 

Forest Foundation, and other partners to coordinate and integrate planning assistance to make the most 

effective use of available program resources and better address diverse landowner needs. Program reach 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-19

will be extended by peer-to-peer landowner networks within landscape focus areas resulting in the longterm management of significant landscapes (as opposed to individual properties) – such as priority 

watersheds – and the conservation of strategically located and connected open spaces. Through the use of 

web-based management plan-writing and accomplishment tracking tools, the program’s impact will be 

tracked spatially, to inform strategic planning and promote place-based partnerships. 

Past Performance

In FY 2009, nationwide, more than 18 million acres of non-industrial private forest lands were managed 

according to current Forest Stewardship plans. Within high priority areas, approximately 2.6 percent, or

7.4 million acres, of non-industrial private forest land was managed according to current Forest 

Stewardship plans. The Forest Service monitors implementation of Forest Stewardship Plans using a 

statistically reliable, nationally consistent field monitoring program. The high priority areas were 

delineated through the program’s GIS-based Spatial Analysis Project. The program is expected to 

increase significantly within these important forest landscape areas, as State partners continue to 

reorganize and focus their resources as required by the 2008 Farm Bill and the Forest Service’s Open 

Space Conservation Strategy. 

The actual number of acres managed under Forest Stewardship Plans was lower than planned for three 

main reasons: First, this is a new measure and when targets were established there was no historic 

baseline information. Second, State agencies must move resources and adapt programs to target newly 

established landscape focus areas. In many cases these involve a completely different and much more 

diverse landowner demographic. Finally, many states need to further refine their landscape assessments 

so that priority areas are better defined (and cover less ground). As required by the 2008 Farm Bill, the 

Forest Service is working with states to improve assessment methods and data standards. With time, 

State partners are expected to further focus technical assistance efforts to impact their highest priority 

landscape areas. 

Program Description

Program Overview

The Forest Stewardship Program is the only Forest 

Service Program focused on private forest land 

management. The program delivers assistance through 

an effective national network of forestry technical 

assistance providers and programs. Because of this 

unique role – and since the majority of America’s 

forests are privately owned – the Forest Stewardship 

Program is central to fulfilling the Secretary’s vision 

for America’s forests. The Forest Stewardship Program 

plays a fundamental role in keeping forests as forests, 

preparing forest landowners for ecosystem services 

markets and other incentive programs, and maintaining 

jobs and diverse forest products markets in rural 

communities.

The program develops and delivers appropriate technical and planning assistance to enable active, 

informed, long-term forest management. Forest Stewardship management plans provide landowners with 

practical guidance for achieving their own unique objectives in a way that also maximizes public goods 

and services provided by forests, such as clean drinking water, clean air, carbon sequestration, wood fiber, 

The Spatial Analysis Project (SAP)

The SAP is a GIS-based strategic management 

tool that allows State forestry agencies to 

identify and spatially display important forest 

lands (rich in natural resources and vulnerable 

to threat), tracts currently under Forest 

Stewardship Plans, and areas of opportunity for

future Forest Stewardship Program efforts. The 

SAP is an integral tool for States in the 

completion of Statewide assessments and 

resource strategies, as required by the 2008 

Farm Bill. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-20

recreation, and scenic landscapes. Landowners who implement Forest Stewardship Management Plans 

are in a much better position to participate in certification programs and access emerging markets, such as 

those for ecosystem services and carbon credits. 

Allocation and Integration

Program funding is allocated to Forest Service regions and the Northeastern Area based on Statewide 

comprehensive program potential and cumulative program impact within priority landscape areas. 

Statewide comprehensive program potential is based on the number of non-industrial private forestland 

(NIPF) owners and the number of NIPF acres. Technical and planning assistance is targeted to 

strategically important forest resource areas, on a landscape scale, maximizing Federal investment. These 

areas are identified using GIS technologies. Program impact is measured primarily by percentage of high 

potential areas being managed under Forest Stewardship management plans as confirmed through a 

statistically valid field-monitoring program. States greatly enhance program impact by integrating 

programs and leveraging partnerships to target high potential areas. This approach follows the Secretary 

of Agriculture’s “All Lands” vision and the Administration’s call for more “effective place-based 

policies.” 

Partnerships 

All Forest Stewardship activities are coordinated with and delivered through State and Territorial forest 

agency partners; thus, the program leverages substantial non-Federal financial and human resources. 

States are required to match Federal funds dollar for dollar, but most far exceed this level. 

The Forest Service partners with the Natural Resources Conservation Service to support the National 

Agroforestry Center, which successfully transfers sustainable agroforestry technologies to thousands of 

land management professionals each year. Also, the Forest Service’s Reforestation, Nurseries, and 

Genetic Resources program provides the latest technical information to people that grow seedlings for 

conservation and forestry, thereby supporting an extensive network for seedling production. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-21

Budget Line Item Cooperative Forestry

Forest Legacy Program

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Forest Legacy Program

Annual Appropriations $49,445 $75,960 $50 $24,100 $100,110 32%

Forest Legacy Program Total $49,445 $75,960 $50 $24,100 $100,110 32%

Annual Appropriation FTEs 25 22 22

Total Full-Time Equivalents (FTEs) 25 22 22

Note: The FY 2010 enacted level reflects the deduction of $500,000 from the Forest Legacy total appropriation of $76,460,000, which was 

directed by Congress for initiation of the Community Forest Program, presented as a separate budget line item in the FY 2011 budget 

(Community Forest and Open Space Conservation).

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Forest Legacy Program

Acres of environmentally important forests 

protected from conversion (Cumulative) N/A 1,448,091 1,643,078 1,897,809 2,085,809 2,300,809

Acres of environmentally important forests 

protected from conversion (Annual) 361,467 88,091 194,987 176,471 188,000 215,000

Parcelization of forests avoided (number of 

parcels prevented) 19,342 2,880 13,392 7,161 5,699 10,506

Note: Annual numbers represent reported accomplishments at the end of the fiscal year. Cumulative numbers represent accomplishments 

through the end of the fiscal year plus adjustments made for late-arriving data from the States, which may result in a mathematical difference 

between the two representations.

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $100,110,000 for the Forest Legacy Program (FLP) including 

a program increase of $24,100,000 from FY 2010 for the protection of important forests that are under 

significant development pressure and that protect air and water quality, provide access, and protect 

important habitat for threatened or endangered wildlife 

or fish species. By permanently protecting important 

working forest lands, the Forest Legacy Program helps 

to create and maintain rural jobs and ensure a robust 

forest infrastructure. 

Forty-one States submitted 64 proposed projects to the 

Forest Service for FY 2011 funding consideration by 

the national selection panel. The proposed projects total 

more than $204,000,000 and have combined support 

from 524 distinct individuals and organizations.

Funding is provided to highest priority activities that can demonstrate performance in a transparent 

manner.

Past Performance

In FY 2009, the FLP completed 69 projects and leveraged $55,000,000 of Federal funds with 

$545,000,000 million of partner funds to protect a total of 176,471 acres. Completed acres were higher 

than anticipated due to the following factors: (1) the FLP completed a significant number of projects, and 

Chippewa Flowage Forest - Wisconsin

$2.5 million of FLP funds will permanently 

protect the third largest inland body of water 

within Wisconsin, which supports a worldclass fishery. The property also abuts Tribal 

lands and provides important linkages with 

another one million acres of already protected 

lands. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-22

some were larger than average and (2) real estate negotiations are very unpredictable. In addition to the 

unpredictable nature of real estate transactions, FLP projects typically take about 2 years to close, so there 

is a time lag between annual funding and the accomplishments. 

Program Description

Program Overview

Through FLP, the Forest Service works with States, private landowners, and other conservation partners 

to protect environmentally critical forests threatened by land conversion through conservation easements 

and fee-simple purchases. Both FLP and the Land Acquisition Appropriation are funded by the Land and 

Water Conservation Fund. Fifty-seven percent (429 million acres) of our Nation’s forests are privately 

owned. Family forest owners and timber companies are facing increasing pressure to sell, subdivide, and 

develop their land. The program provides financial incentives to private landowners to conserve their 

forests, thereby protecting outdoor recreation opportunities, fish and wildlife habitat, water quality, and 

resource-based economies. The program operates on a “willing buyer-willing seller” basis and is a nonregulatory, incentive-based land conservation program. 

Protection of private forests through FLP is essential to maintain the multitude of public benefits, 

ecosystem services, and products that forests provide. Conservation across a landscape rather than 

focusing solely within ownership boundaries is essential to address large-scale conservation issues such 

as resilience to climate change, conservation of water resources, reduction of wildfire risk, and protection 

of at-risk species. 

Allocation and Integration

FLP projects are nominated through a two-stage competitive 

process (State-level identification and approval, and a national 

review and ranking), resulting in high-quality projects 

supported both locally and nationally. Each project is ranked 

using three standardized criteria: importance – public benefits 

gained from the protection and management of the property; 

threat – likelihood of conversion to non-forest uses resulting 

in a loss of forest values and public benefits; and strategic –

project fits with a larger conservation plan, strategy, and 

initiative, and enhances previous conservation investments. 

Project management funds are allocated to the regions based 

on management needs for the projects.

Partnerships

To date, more than 1.9 million acres of environmentally important private lands have been protected 

through FLP. States and landowners are the primary partners, but land trusts and other conservation 

organizations play a critical role in identifying and completing projects. While the program requires a 25 

percent non-Federal match, the program averages a 50 percent non-Federal match.

Forest Legacy Program FY2011 Project List

Ocmulgee - Georgia

$4 million of FLP funds will leverage a 

total of $65 million of other public and 

private funds to permanently protect 

21,000 acres of important working 

forests. This property will provide 

recreational opportunities including 

hunting, and protect habitat, including 

the longleaf pine ecosystem, identified as 

a priority within the State’s Wildlife 

Action Plan. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-23

Final 

Rank State Project Name Panel 

Request

Administrative Funds 6,400,000

WY New State Start-up 500,000

1 ME West Grand Lake Community Forest 6,675,000

2 MT Clearwater 5,900,000

3 MI Crisp Point 5,175,000

4 KY Big Rivers Corridor 3,250,000

5 ID North Idaho Timberland Communities 3,850,000

6 TN North Cumberland Conservation Area 3,000,000

7 CO Ben Delatour Scout Ranch 4,000,000

8 NH Androscoggin Headwaters 4,100,000

9 MA Brushy Mountain 5,000,000

10 WI Chippewa Flowage Forest 2,500,000

11 FL Thomas Creek 3,500,000

12 VT Northern Green Mountains Linkage 2,300,000

13 NY Follensby Pond 3,500,000

14 CA Chalk Mountain Area 2,000,000

15 NM Vallecitos High Country 1,925,000

16 GA Ocmulgee WMA expansion 4,000,000

17 AR Maumelle Water Excellence 2,500,000

18 FSM Yela Forest Watershed 530,000

19 NV Castles-Bowers Mansion 500,000

20 PA Little Bushkill Headwaters Forest Reserve 2,500,000

21 NH Cardigan Highlands 1,350,000

22 IA Upper Iowa River Watershed 1,500,000

23 DE Chesapeake Headwaters 2,250,000

24 IN Discover Woods 850,000

25 UT Green Canyon 2,000,000

26 CT Scantic River Headwaters Project 2,230,000

27 WA Mt St Helens Forest 2,000,000

28 NC Campbell Creek Watershed 2,000,000

29 SD Blood Run 1,300,000

30 TX Longleaf Ridge Conservation Area 1,600,000

31 SC Savannah River Phase II 1,100,000

32 ME Katahdin Forest Expansion 3 - Gulf Hagas 1,500,000

33 CA Usal Redwood Forest 1,000,000

34 MI Thumb Lake Forest 1,100,000

35 AK Chugach State Park 1,000,000

36 MT Birch Creek Demonstration Forest 1,650,000

37 OR South Eugene Hills Phase II 1,075,000
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-24

Final 

Rank State Project Name Panel 

Request

38 AL Tallapoosa River Fall Line Hills 1,000,000

Total Funding $100,110,000
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-25

Budget Line Item Cooperative Forestry

 Community Forest and Open Space Conservation Program

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Community Forest & Open Space Conservation

Annual Appropriations $0 $500 $0 $500 $1,000 100%

Community Forest & Open Space Conservation Total $0 $500 $0 $500 $1,000 100%

Annual Appropriation FTEs 0 0 0

Total Full-Time Equivalents (FTEs) 0 0 0

Note: The FY 2010 enacted level reflects the $500,000 for initiation of the Community Forest Program which was included in the FY 2010 

Forest Legacy appropriation of $76,460,000.

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $1,000,000 for initiation of the newly authorized Community 

Forest and Open Space Conservation Program (CFP), authorized by Section 8003 of the Food, 

Conservation, and Energy Act of 2008 (Public Law 110-234; 122 Stat. 1281). The purpose of CFP is to 

achieve community benefits through grants to local governments, Tribal Governments, and nonprofit 

organizations to establish community forests by acquiring and protecting private forestlands. By creating 

community forests through land acquisition, communities and tribes can provide public access and 

recreational opportunities, protect vital water supplies and wildlife habitat, provide demonstration sites for 

private forest landowners, and derive financial and community benefits from sustainable management.

In FY 2010, the Forest Service will issue proposed regulations outlining how this program will be 

administered and will solicit comments on these proposed regulations in FY 2010. In FY 2011, the Forest 

Service will finalize the program regulations, developed to ensure consistent and transparent program 

implementation. The Forest Service will use the FY 2011 funds both to issue the new program’s first 

Request For Proposals and to fund the first CFP pilot projects. Forest Service anticipates using a 

nationally competitive process to prioritize and fund the best CFP projects. The published regulations 

will outline application requirements, as well as the standard selection criteria to be used by the Forest 

Service.

Past Performance

The Community Forest Program was authorized in 2008, and the first funds were appropriated in FY 

2010. 

Program Description

Program Overview

The CFP authorizing language specifies that the Secretary of Agriculture, acting through the Chief of the 

Forest Service, may award grants to local governments, Tribal Governments, and nonprofit organizations 

to protect permanently, through fee-simple acquisition, private forests that are threatened by conversion to 

non-forest uses and to ensure these forests provide specified public benefits to communities. 

Community benefits under CFP include, but are not limited to: (1) recreational benefits, including hunting 

and fishing; (2) economic benefits through sustainable forest management; (3) environmental benefits, 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-26

including clean water and wildlife habitat; (4) benefits from forest-based educational programs, including 

vocational education programs in forestry; (5) benefits from serving as replicable models of effective 

forest stewardship for private landowners; and, (6) public access benefits. The Federal contribution to the 

project cannot be more than 50 percent of the total project cost. 

The CFP complements the Forest Legacy Program (FLP) and the Urban and Community Forestry 

Program (UCF), but is not duplicative of either program. To protect at-risk lands, FLP typically utilizes 

conservation easements, and CFP will utilize fee-simple purchases. Generally, the size of the projects and 

use of the lands will differ between the two programs. CFP and FLP each engage unique partners and 

utilize different tools for land protection. While it is possible some projects may align with the intent of 

both programs, most projects will qualify for only one. Unlike UCF, CFP is a land 

protection/preservation program, which provides another tool to those entities that have demonstrated a 

sustained commitment to community forestry.

Allocation and Integration

The Forest Service proposes conducting a competitive review and ranking process. The review and 

rankings will be based on criteria outlined in the proposed regulations. The Forest Service anticipates 

issuing an annual request for proposals, which will provide additional specificity on the review process, 

review criteria, and timelines.

Partnerships

The Forest Service has received a letter from 118 organizations, including States, local governments, and 

land trusts, in support of the program, and requesting that the agency move quickly towards 

implementation. The Forest Service anticipates that CFP will receive support from State and local 

governments, Tribal Governments, land trusts, and other conservation organizations and communities.
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-27

Budget Line Item Cooperative Forestry

 Urban and Community Forestry

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Urban & Community Forestry

Annual Appropriations $29,541 $30,377 $101 $1,950 $32,428 6%

Urban & Community Forestry Total $29,541 $30,377 $101 $1,950 $32,428 6%

Annual Appropriation FTEs 45 45 45

Total Full-Time Equivalents (FTEs) 45 45 45

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Urban & Community Forestry

Percentage of people living in communities 

managing programs to plant, protect, and 

maintain their urban and community trees 

and forests. 37.0% 38.0% 39.6% 42.0% 37.0% 37.0%

Percentage of people living in communities 

developing programs and/or activities to 

plant, protect, and maintain their urban and 

community trees and forests. 36% 34% 38% 34% 38% 38%

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $32,428,000 for the Urban and Community Forestry (U&CF) 

program, a program increase of $1,950,000 from FY 2010. The budget increase will be used to 

implement a national, competitive, cost-share grant program for strategic tree planting in urban areas. 

This program will seek to reduce net greenhouse gas emissions through carbon sequestration and energy 

conservation. The program will track sequestered carbon that is directly removed from the atmosphere 

and stored by those planted trees. Planting 5 million trees in cities, for example, removes 3.5 million 

metric tons of carbon dioxide from the air. Energy conservation will be based on energy savings (reduced 

energy consumption) from summer cooling and winter heating, as measured by the associated reduction 

of CO2 emissions from power plants. Shade trees planted in strategic locations can reduce residential 

cooling costs by as much as 30%. This will be the first USDA program that ranks project proposals based 

on the amount of carbon they will sequester per Federal dollar spent.

Communities that have not yet established any kind of urban forestry program are not as likely to 

compete for strategic tree planting competitive grants. This program will likely help advance existing 

urban forestry programs and the effectiveness of these programs, already included in the output targets 

listed above. U&CF will continue to work with State forestry agencies, and other partners to assist 

communities in developing and advancing their urban forestry programs, thus optimizing the social, 

economic, and environmental services that trees and forests provide. Special emphasis will be placed on 

landscape-scale demonstration projects that have regional and national significance for urban and 

community forest management across landscapes. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-28

Past Performance

In FY 2009, U&CF provided assistance to 6,853 

communities, reaching a total of 173 million people. 

The population served by the program in FY 2009 

represented over 75 percent of the people living in 

communities with the potential to develop programs to 

plant, protect, and manage their urban and community 

trees and forests. U&CF continued to work with State 

forestry agencies and other partners to assist 

communities in developing and advancing their urban 

forestry programs. Funding is provided to the highest 

priority activities that can demonstrate performance in 

a transparent manner.

Program Description

Program Overview

Urban areas have lost more than 600 million trees to development over the last 30 years. The U&CF 

program assists cities, suburbs, and towns across the country in improving the condition and coverage of 

community trees and forests. Forest Service researchers have shown that investments in urban tree 

planting projects will return substantial net benefits over time. The net benefits to communities planting 

10,000 trees will be approximately $20 million to $30 million over a 40-year period, generating $2-$5 

dollars in benefits for every dollar spent. Active management of these assets secures the greatest 

economic, social, and environmental benefits for 80 percent of the Nation's population. U&CF delivers 

technical, financial, educational, and research assistance to communities in all 50 States, the District of 

Columbia, and 8 U.S. territories. Assistance is delivered to communities primarily through State forestry 

agencies. Program priorities emphasize increasing community tree canopy, improving urban forest 

management and reducing impacts of land use change to deliver critical ecosystem services such as air 

and water quality, storm water management, energy conservation, greenhouse gas reduction, wildlife 

habitat, and improved human health and well being. The U&CF program will utilize the Forest Service’s 

tree benefits assessment research, which has now come of age, to evaluate project proposals and 

performance.

State and territorial partners also focus educational and technical assistance and outreach efforts on 

helping localities improve the resilience of their urban and community forests in response to climate 

change stresses. Program partners assist communities in strategic tree planting and active management of 

the urban forest to increase carbon sequestration, reduce energy consumption and reduce greenhouse gas 

emissions from power plants, reduce the forest's susceptibility to insects and disease, improve the forest's 

ability to contribute to clean water quality and quantity needs, and generate bio-fuels from urban wood 

waste products to off-set fossil fuel usage. 

Allocation and Integration

U&CF allocates funds based on performance that is monitored using a web-based accomplishment 

reporting system. Allocations target communities that have established one or more of the following: 

professional urban forestry staff, tree ordinances, urban forest management plans, or tree boards or 

advisory organizations. 

Urban Forests Enhance Community 

Health and Well-being

The U&CF program has provided Challenge 

Cost-Share Grant funding for projects to 

demonstrate the value of urban forests to 

contribute to human health and well-being. In 

2009 a grant was awarded to the City of New 

York to examine the linkages between urban 

forests, community air quality, and respiratory 

health, including childhood asthma. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-29

For the new U&CF grant program, all municipal governments will be eligible to apply, but proposals will 

require a minimum 50 percent cost-share from grantees. Working with State Foresters, the Deputy Chief 

of State and Private Forestry will select projects based on the quantity of carbon both avoided and 

sequestered as a result of the Federal investment. Tree plantings will require a planting plan. Grant funds 

can be used for the purchase of trees and planting supplies, the cost of installation, and the cost of their 

maintenance for three years after installation. At project completion, a final assessment of carbon 

sequestered and offset will be provided, informed by the actual trees planted with this funding.

U&CF and Forest Health Protection staffs also support pilot programs to monitor urban forest health, 

including the early detection and response to invasive insect pests such as emerald ash borer and Asian 

long-horned beetle. U&CF works with Research and Development to develop, disseminate, and support, 

an urban and community forest benefits assessment and management software, called i-Tree. It is 

currently distributed to 5,700 entities in the U. S. across all 50 states, and 49 different countries on 6 

continents. 

Partnerships

U&CF delivers its program through a continually expanding partnership network of State forestry 

agencies, other Federal agencies, local governments, community organizations, and volunteers. State 

programs leverage FS investment with other funding sources, by more than 350 percent, to deliver 

financial assistance to communities for urban and community forestry. To achieve program priorities, 

U&CF is also working with the USDA National Agroforestry Center, The Conservation Fund, 

Sustainable Urban Forest Coalition, National Association of Regional Councils, National Science 

Foundation, and other national partnership organizations.
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-30

Budget Line Item Cooperative Forestry

Economic Action Programs

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Economic Action Programs

Annual Appropriations $4,973 $5,000 $0 -$5,000 $0 -100%

Economic Action Programs Total $4,973 $5,000 $0 -$5,000 $0 -100%

Annual Appropriation FTEs 1 0 0

Total Full-Time Equivalents (FTEs) 1 0 0

FY 2011 Program Changes

The FY 2011 President’s Budget does not propose funding for Economic Action Programs, because the 

program is highly duplicative of other rural community assistance programs within USDA.

Program Description 

Program Overview

Economic Action Programs build capacity within communities to take strategic action and effectively 

engage in and contribute to the sustainable management of natural resources from the local to national 

level. Funds appropriated through this program enhance the ability of private enterprises to treat 

forestland, utilize restoration by-products, and meet energy resource needs; stimulate local community 

action to care for forests and grasslands; and support collaborative actions across ownership or agency

boundaries.
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-31

Budget Line Item Cooperative Forestry

Forest Resources Information and Analysis

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Forest Resources Information & Analysis

Annual Appropriations $5,000 $5,035 $33 $0 $5,068 0%

Forest Resources Information & Analysis Total $5,000 $5,035 $33 $0 $5,068 0%

Annual Appropriation FTEs 15 15 15

Total Full-Time Equivalents (FTEs) 15 15 15

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $5,068,000 for Forest Resources Information and Analysis, to 

provide funding to support the census of and reporting on the Nation’s forested resources. The FIA 

program will continue to provide information that can be used by managers and policymakers to address 

climate change impacts to forest and rangelands. This includes information relevant to air quality 

concerns, carbon management through carbon sequestration, water supply, fire risks and impacts, and 

insect infestations.

Past Performance

In FY 2009, the Forest Inventory and Analysis (FIA) program was implemented in 47 states. Research 

and Development continued enhancement of Forest Inventory Data Online (FIDO). This improved 

version built upon and significantly extended the capabilities of the earlier version. FIDO now allows 

users to create custom reports on the forest resources of the United States and continues to use an 

estimation engine to produce population estimates and variances per published methods. This web-based 

interactive tool provides easy and quick access to the latest FIA data for a wide range of users. National 

Forests, State forestry agencies, non-governmental organizations, universities, forest industries and other 

Federal agencies are a few of the users of this tool. The prototype may be viewed on FIA Web at 

http://fia.fs.fed.us. 

Program Description

Program Overview

The Forest Resources Information and Analysis (FRIA) budget provides funding to support 

implementation of Research and Development’s FIA program. FIA is the Nation’s forest census, 

reporting on the status and trends of the Nation’s forested resources. State and Private Forestry uses 

FRIA funds to provide cost-share assistance to participating States that contribute to the FIA program. 

FIA monitors the extent, condition, uses, impacts of management, and health of forest ecosystems across 

all ownerships of the United States. The goal is to accelerate the inventory cycle in all participating 

States.

Allocation and Integration

The program supports forest inventory activities with costs shared by States. Allocations to States are 

based upon the cost-effectiveness of past performance of State FIA implementation. State contributions 

represent approximately 12 percent of the entire program funds. In order to make efficient use of 

available resources, FIA contracts some services when partners can provide them at a lower cost. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-32

Partnerships

FIA is managed as a partnership, led by Forest Service Research & Development in cooperation with the 

National Forest System, State & Private Forestry, and the National Association of State Foresters. FIA 

customers include National Forests and Grasslands, State forestry agencies, Federal and State policy 

makers; corporations and consultants; researchers; environmental organizations; land managers; media; 

and anyone interested in reliable, current forest data. Partners make matching cash contributions or 

provide in-kind staff support for program implementation as well as in-kind services that facilitate or add 

value to program outputs. 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-33

Budget Line Item International Forestry

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

International Forestry

Annual Appropriations $8,500 $9,818 $68 -$750 $9,136 -8%

International Forestry Total $8,500 $9,818 $68 -$750 $9,136 -8%

Annual Appropriation FTEs 28 30 30

Total Full-Time Equivalents (FTEs) 28 30 30

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $9,136,000 for the International Forestry (IF) program which 

includes a pay cost increase of $68,000 and a program decrease of $750,000. The requested level will 

maintain priority investments in natural resource conservation issues, including climate change, invasive 

species, biodiversity conservation, migratory species, and advancing US policy interests. 

Past Performance

Several specific examples illustrate the relevance of the international work done by the International 

Forestry program. During the 2009-2010 school year, an innovative program will involve more than a 

quarter of a million students – from Canada, the United States and Mexico – in live, interactive field trips 

that follow the migration of the Monarch Butterfly. The program, called MonarchLIVE, allows students 

to talk to scientists working at the biosphere reserve where the butterflies overwinter. The charismatic 

Monarch butterfly links together students, researchers, and land managers from all three countries, 

fostering appreciation of international conservation and underscoring the ecological interconnectedness of 

the hemisphere. 

Another excellent example can be found in a partnership that International Forestry formed with the 

Memphis Zoo several years ago to address joint forest health restoration in China. Ongoing joint research 

in China focuses on restoring panda habitat, involving local communities in management and preservation 

aspects. In 2008 the Zoo opened a new interpretive exhibit—seen by thousands of visitors—featuring 

Forest Service contributions to forest health worldwide. Other important international work involving 

China includes International Forestry’s ongoing research and exchange to prevent and mitigate damage 

from invasive forest pests.

A third example is a partnership International Forestry developed with the Hummingbird Monitoring 

Network, spurred by declining hummingbird populations across the Western United States, Canada and 

Mexico. The joint effort, the Western Hummingbird Project, addresses conservation issues in western 

North America. Working across international boundaries is the most effective way to counter the impacts 

of human activities and global climate change on these fragile birds. 

Program Description

Program Overview

The International Forestry program promotes sustainable forest management and addresses climate 

change issues globally; bringing important technologies and innovations back to the United States. Forest 

Service land managers and scientists deliver their expertise overseas through technical cooperation, 
FY 2011 Budget Justification USDA Forest Service

State and Private Forestry 6-34

training, policy assistance, and in disaster preparedness and response. The program focuses on key 

natural resource needs in countries with significant forest resources and important forest product related 

trade with the United States. The program is critical in protecting U.S. investments in a wide array of 

domestic natural resource conservation issues, including climate change, invasive species, biodiversity 

conservation, migratory species, and forest conservation. Furthermore, the program fosters improved 

natural resource management worldwide, advancing the understanding of the most pressing international 

issues including climate change, forest-dependent community sustainability, land management, and 

biodiversity. 

Allocation and Integration

The program prioritizes work and directs funding in several different ways. The program focuses on 

climate change and related forest management and policy issues including conserving migratory species 

habitats and addressing the threat of invasive species, particularly those posing the greatest potential 

threat to US forests. The program collaborates closely with Forest Service field units and with domestic 

and international partners including those in other U.S. government agencies, foreign governments, 

international and local environmental organizations, universities and the private sector. Lastly, priorities 

are set in conjunction with the U.S. Department of State to address the most important international issues 

including climate change, illegal logging, and sustainable forest management. 

Partnerships

The International Forestry program works in coordination with domestic and international partners 

including those in other U.S. government agencies, foreign governments, international and local 

environmental organizations, universities and the private sector, on a range of forest management and 

policy issues. The International Forestry program currently collaborates with other governments, nongovernmental organizations, and the private sector on climate change and avoided deforestation through 

policy engagement and technical cooperation. International policy discussions on climate change have 

recently become more focused on the role of forests and grasslands in greenhouse gas production and 

capture. Support for schemes to reduce emissions from deforestation and degradation are gaining 

momentum. International Forestry works closely with the U.S. Department of State and other U.S. 

government agencies in these international policy deliberations. In coordination with other governments, 

non-governmental organizations, and communities, International Forestry engages in technical 

collaboration to develop capacity, strengthen institutions, and develop economic alternatives to 

unsustainable harvesting and management practices. The focus is on reducing deforestation and land 

degradation while at the same time improving management practices and protecting habitat around the 

world.
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 1 

Appropriation National Forest System

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

National Forest System

Annual Appropriations $1,509,805 $1,551,339 $14,155 $20,225 $1,585,719 1%

Supplemental & Emergency Funding $0 $0 $0 $0 $0

National Forest System Total $1,509,805 $1,551,339 $14,155 $20,225 $1,585,719 1%

Annual Appropriation FTEs 11,445 11,302 11,085

Supplemental & Emergency Funding FTEs 34 0 0

Total Full-Time Equivalents (FTEs) 11,479 11,302 11,085

National Forest System

Integrated Resource Restoration $0 $0 $6,056 $687,716 $693,772 0%

Land Management Planning $48,833 $45,917 $440 -$399 $45,958 -1%

Inventory & Monitoring $167,580 $170,502 $1,297 -$1,807 $169,992 -1%

Recreation, Heritage & Wilderness $277,635 $285,117 $3,035 $5,000 $293,152 2%

Wildlife & Fisheries Habitat Management $139,385 $143,014 $0 -$143,014 $0 -100%

Grazing Management $50,000 $50,714 $559 -$765 $50,508 -2%

Forest Products $332,666 $336,722 $0 -$336,722 $0 -100%

Vegetation & Watershed Management $180,437 $187,960 $0 -$187,960 $0 -100%

Minerals & Geology Management $85,470 $87,240 $716 -$590 $87,366 -1%

Landownership Management $93,299 $95,606 $951 -$1,234 $95,323 -1%

Law Enforcement Operations $135,500 $145,047 $1,101 $0 $146,148 0%

Valles Caldera National Preserve $4,000 $3,500 $0 $0 $3,500 0%

Rescission of Prior Year Unobligated Balances -$5,000 $0 $0 $0 $0 0%

Table Notes: National Forest System total authority does not match the printed President’s Budget; the amount 

displayed will be in the forthcoming Errata to the President’s Budget.

Wildlife & Fisheries Habitat Management, Forest Products, and Vegetation & Watershed Management BLIs have 

been incorporated into the Integrated Resource Restoration.

The National Forest System and Programs

The FY 2011 President’s Budget proposes $1,585,719 for the National Forest System, a $20 million 

program increase from FY 2010. The National Forest System (NFS) appropriation provides funds for the 

stewardship and management of the 193 million acres of national forests and grasslands. The requested 

funds provide for pay costs and provide for the planning, assessment, and conservation of ecosystems 

while delivering multiple public services and uses. Following Secretary Vilsack’s vision, the Forest 

Service has placed a focus on improving the health of its watersheds, restoring ecosystem functions, 

increasing forests’ resiliency to climate change, and creating vibrant local economies. Management of 

these natural resources requires the complex integration of many different program areas. The suite of 

NFS programs support the planning, coordination, and implementation of activities which foster 

recreational opportunities for the public, energy for the Nation, timber and non-timber forest products, 

habitat for wildlife, forage for domestic animals, water-quality protection and improvement, and job 

creation. These activities are managed to meet the needs of the Nation while maintaining or improving 

the health of the land and protecting the environment. 
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 2 

Integrated Resource Restoration

The Forest Service proposes a restructuring of the Agency budget that better characterizes the scope of 

the work that the Agency intends to perform in FY 2011. The budget proposes a new budget line item

within the NFS account, Integrated Resource Restoration, which combines the Wildlife and Fisheries 

Habitat Management, Forest Products, and Vegetation and Watershed Management budget line items;

includes the Collaborative Forest Landscape Restoration Fund; and adds a new Priority Watershed and 

Job Stabilization initiative. Restoration projects aimed at repairing damage to the natural diversity and 

ecological dynamics of national forests will require focusing Forest Service resources to support more 

watershed and ecosystem improvement efforts and integrating stewardship activities, such as 

reforestation, mechanical removal of timber, road decommissioning, and wildlife habitat improvement. 

The consolidation of these programs will allow the agency to refocus its resources on enhancing forest 

and watershed resiliency, preventing the loss of large carbon sinks, and maintains jobs. This change will 

also enhance the agency’s ability to use stewardship contracting to meet restoration objectives and will 

reinforce the cultural transition of the agency toward harvesting forest products for forest health, 

ecosystem, or watershed benefit.

The FY 2011 President’s Budget represents a change in the management perspective of the national 

forests that reflects current science and the need for sustainable economic development. Science will 

identify which forest landscapes are in greatest need of restoration and the type of management that will 

be needed. Restoration projects designed to meet these needs are highly diverse and include a variety of 

labor-intensive and equipment-intensive activities such as mechanical removal of vegetation, removing 

roads, or plantings along streams—activities that support forest-based industries and lead to jobs. 

Establishment of a single budget line item (BLI) for national forest restoration allows the Forest Service 

to refocus its resources on enhancing water quality, forest health, and resilience. A single BLI enhances 

administrative efficiency by reducing the number of accounting codes and reflects economies of scale 

available when projects are focused on a large land base. This change will also enhance the agency’s 

ability to simplify and standardize Federal contract requirements.

The FY 2011 budget directs $694 million to Integrated Resource Restoration, which includes funding for 

the Restoration and Management of Ecosystems, the Collaborative Forest Landscape Restoration Fund, 

and the Priority Watershed and Job Stabilization initiative. These programs demonstrate the Agency’s 

transition to working and thinking at a landscape scale.

Restoration and Management of Ecosystems – The budget proposes $604 million to fund the 

treatment of terrestrial and aquatic ecosystems to sustain or restore watershed function and resilience. 

Some of the key actions to be funded under this activity are reforestation projects, watershed 

improvement activities, and habitat improvement projects that can demonstrate immediate increases 

in wildlife or fish populations or ranges, e.g. fish barrier removal. Stewardship contracts and 

agreements will be one of the main authorities used to manage natural resources. Forest products 

removed in restoration activities will not only look to traditional markets but also include a focus on 

new and emerging markets..

Collaborative Forest Landscape Restoration Fund - Using the authorities provided through Title IV 

of the Omnibus Pulic Land Management Act of 2009 (16 U.S.C. 7301), the Forest Service budget 

provides full funding ($40 million) for the Collaborative Forest Landscape Restoration fund. This 

fund will be used for ecological treatments contributing to significantly improving watershed 

conditions, creating landscapes that are more resilient to climate change, and reducing fire risk. 

Through collaboration with stakeholders, at least ten landscape-scale projects will be cost-shared. 
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 3 

Priority Watersheds and Job Stabilization – Under this $50 million initiative, rapid watershed 

assessments will be conducted of all NFS lands; the agency will prioritize watershed improvement 

work; and work that can demonstrate a change in watershed condition will be funded in a variety of 

watersheds across the country. Priorities will be informed by identification in the State Forest 

Assessments, watershed condition, costs, and input from local communities. Under this initiative 

Forest Service will also conduct an assessment of the Agency’s likely biomass outputs for the next 

ten years to inform and support biomass utilization sites, and will issue a scattering of stewardship 

contracts (up to ten years in duration) to create and secure green jobs in the places where long-term 

investments in infrastructure are most needed. Creating job opportunities for youth in rural areas will 

be an important part of this initiative. In order to advance projects expeditiously the agency is 

proposing a streamlined objection process through which administrative challenges are heard under 

established timelines.
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 4 

Budget Line Item Integrated Resource Restoration

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Integrated Resource Restoration

Annual Appropriations $0 $0 $6,056 $687,716 $693,772 0%

Integrated Resource Restoration Total $0 $0 $6,056 $687,716 $693,772 0%

Annual Appropriation FTEs 0 0 5,010

Total Full-Time Equivalents (FTEs) 0 0 5,010

Integrated Resource Restoration

Restoration & Management of Ecosystems $0 $0 $6,056 $597,716 $603,772 0%

Collaborative Forest Landscape Restoration Fund $0 $0 $0 $40,000 $40,000 0%

Priority Watersheds & Job Stabilization $0 $0 $0 $50,000 $50,000 0%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Integrated Resource Restoration

Number of watersheds in Condition Class 1 N/A N/A N/A N/A 3,857 3,876

Number of watersheds in Condition Class 2 N/A N/A N/A N/A 5,476 5,500

Number of watersheds in Condition Class 3 N/A N/A N/A N/A 3,303 3,260

Acres treated annually to sustain or restore 

watershed function and resilience N/A N/A N/A N/A N/A 2,000,000

FY 2011 Program Changes

The FY 2011 President’s Budget proposes establishment of the Integrated Resource Restoration budget 

line item (BLI) by combining the Wildlife and Fisheries Habitat Management, Forest Products, and the 

Vegetation and Watershed Management BLIs. Also included in this program is the Collaborative Forest 

Landscape Restoration Fund (CFLRF) and the Watershed Improvement and Job Stabilization program. 

The establishment of this new BLI will facilitate implementation of the USDA priority for focused, largescale ecosystem restoration and provide ecosystem services that are important to the public including 

clean and abundant water, renewable energy from biomass, restored wildlife and fish habitat, and resilient 

forests and rangelands. Restoration projects aimed at repairing damage to the natural diversity and 

ecological dynamics of national forests will require focusing Forest Service resources to support more 

watershed and ecosystem improvement efforts and integrating stewardship activities, such as 

reforestation, mechanical removal of timber, road decommissioning, and wildlife habitat improvement. 

The consolidation of these programs will allow the agency to refocus its resources on enhancing forest 

and watershed resiliency, preventing the loss of large carbon sinks, and maintaining jobs. Timber 

removal will occur predominately within the context of larger restoration objectives, most usually through 

the use of stewardship contracts or agreements. This change will also enhance the agency’s ability to 

meet restoration objectives and will provide for the harvesting of forest products as a component of 

restoration activities that enhance forest health, ecosystem, or watershed conditions.

The President’s Budget proposes $693,772,000 for Integrated Resource Restoration in FY 2011. Funds 

will be targeted to restore watershed health, and ecosystem function, and priority will be given to projects 

that are collaborative and part of an all-lands, large-scale conservation strategy. Priority will be 

implementing integrated ecosystem restoration projects on targeted watersheds at the hydrologic unit code 
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 5 

(HUC) 6 level, with the goal of improving the targeted watershed’s condition class. The intent is to 

recognize the challenges ahead due to the effects of climate change, and to prioritize and facilitate 

integrated restoration efforts to address these impacts.

A broad array of management activities are involved in treating National Forest System lands to meet 

watershed and ecosystem sustainability and restoration goals and will have multiple benefits. Four 

performance measures will communicate accomplishments from Integrated Resource Restoration funds: 

Number of Watersheds in Condition Class 1; Number of Watersheds in Condition Class 2; Number of 

Watersheds in Condition Class 3; and Acres treated annually to sustain or restore watershed function and 

resilience. These measures reflect cumulative program planning and execution. The activities included in 

the Integrated Resource Restoration program are discussed in the Program Description section, below. 

Accomplishments for the performance measures historically tracked under the FY 2010 budget structure 

will continue to be tracked for program management purposes. However, successful implementation will 

be determined by long-term improvements in the condition class of the watersheds.

Management priorities and actions funded under these activity areas include:

Restoration and Management of Ecosystems – The request will directly fund treatment of an 

estimated unified accomplishment of 2,000,000 acres of terrestrial and aquatic ecosystems to sustain 

or restore watershed function and resilience. Approximately 970,000 acres will be funded directly by 

Integrated Resource Restoration funds. An additional 265,000 acres are projected utilizing permanent 

appropriations and trust funds; 565,000 acres are projected from other programs such as Hazardous 

Fuels; and 200,000 acres will be restored through work with partners. The agency will continue to 

integrate accomplishment of high-priority terrestrial and aquatic ecosystem restoration needs with 

road maintenance and decommissioning, Forest Health, hazardous fuels reduction, and other 

management activities funded through other program appropriations. Partnerships are essential in 

meeting mutual restoration objectives and accomplishing landscape-scale restoration across 

jurisdictional and ownership boundaries. Forest Service will emphasize reforestation projects and 

habitat improvement projects that can demonstrate immediate improvements in wildlife or fish 

habitat. 

Stewardship contracts and agreements will be the primary means of managing natural resources and 

includes a focus on new and emerging markets for wood removed in restoration activities (including 

use of woody biomass for energy), in addition to more traditional markets. This focus will create 

green jobs and promote a diverse forest products industry to support sustainable communities and the 

forest contractor infrastructure needed to perform critical restoration work. The Forest Service can 

provide opportunities to achieve land and natural resource management goals while promoting closer 

public-private working relationships through stewardship contracts and agreements by using the value 

of forest products to offset the cost of services. Non-stewardship timber sales paid for under this 

Activity may still be used to meet some habitat improvement, watershed enhancement, or other forest 

restoration objectives. Most often, restoration projects designed to meet science-informed restoration 

requirements will use stewardship contracts to conduct restoration activities such as mechanical 

removal of vegetation, decommissioning roads, or plantings along streams – activities that support 

forest-based industries and lead to jobs. Moreover, timber sales may also be conducted when the 

value of the forest products will bring in more receipts for the timber sale than the Agency expends 

on preparing and administering the contract.
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 6 

Collaborative Forest Landscape Restoration Fund – Congress, under Title IV of Omnibus Public 

Land Management Act of 2009, established the Collaborative Forest Landscape Resotration Fund 

(CFLR). The Forest Service budget provides full funding of $40 million for CFLRF. The purpose of 

the CFLRF is to encourage collaborative, science-based ecosystem restoration of priority forest 

landscapes. This will be accomplished through a process that encourages ecological and economic 

sustainability, leverages national resources with local and private resources, re-establishes natural fire 

regimes, tracks performance, and uses of forest restoration byproducts to offset treatment costs. 

This fund will be used for ecological treatments contributing to significantly improving watershed 

conditions, creating landscapes that are more resilient to climate change, and reducing fire risk. 

Through collaboration with stakeholders, at least ten landscape-scale projects will be cost-shared. 

Priority Watershed Restoration and Job Stabilization – Funds will be spent on proposed watershed 

restoration projects that will be selected through a nationally prioritized process and based on a rapid 

watershed assessment. This initiative is a pilot program that will use a national competitive process 

to: 

• Identify a minimum of three key watersheds of national significance in need of improvement; 

• Provide for landscape scale restoration (large acreages); and 

• Lead to increased employment and outputs of forest products and biomass available for 

sustainable economic development.

Under this $50 million initiative, work that can demonstrate a change in the condition class of a 

watershed will be funded in a variety of areas across the country. Priorities will be informed by 

identification in the State Forest Assessments, watershed condition, costs, and input from local 

communities Restoration projects will include riparian corridor improvements, fish and wildlife 

habitat improvements, exotic species eradications, non-system road decommissioning , putting system 

roads into storage, and fuels treatments, specifically for reducing the potential effects that fires pose 

to water quality. 

Under this initiative Forest Service will also conduct an assessment of the Agency’s likely biomass 

outputs for the next ten years to inform and support biomass utilization sites, and will issue a 

scattering of stewardship contracts (up to ten years in duration) to create and secure green jobs in the

places where long-term investments in infrastructure are most needed. Creating job opportunities for 

youth in rural areas will be another important component of this initiative. 

In order to advance projects expeditiously the agency is proposing a streamlined objection process 

through which administrative challenges are heard under established timelines, prior to projects 

commencing. Projects remain subject to the National Environmental Policy Act of 1969.

Program Description

Program Overview

The Integrated Resource Restoration program is the foundation for the watershed, fish and wildlife, 

forest, and rangeland restoration and enhancement activities on NFS lands. Restoration and maintenance 

of sustainable landscapes and watersheds requires a holistic approach and includes actions to restore or 

sustain water quality and watershed processes; soil condition, stability and productivity; vegetative 

composition and condition; air quality; fish and wildlife habitat and populations; and aquatic ecosystem 

connectivity. The program directly funds watershed-scale restoration projects and leverages 

accomplishment of additional restoration objectives through program integration and partnerships. 

Management priority for the program is to focus activities in specific areas, whether forests, landscapes, 
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 7 

Longleaf Pine Biological Diversity 

In the Southern Region, hundreds of 

thousands of acres were treated in shortand longleaf pine habitat benefiting a 

number of the 29 Federally-listed 

species that are part of the longleaf pine 

ecosystem including the red-cockaded 

woodpecker, gopher tortoise, and roughleaf loosestrife.

or watersheds, to address the problems posed with the appropriately scaled, identified treatment, with the 

goal of creating healthy ecosystems, restoring landscapes, and improving watersheds. These investments 

will help sustain and restore the core components of functioning ecosystems, enhance watershed 

resilience in the face of climate change, and help meet the increasing demand for water resources. 

Program appropriations fund management actions to improve water quality, quantity, and timing of 

stream flows; provide clean air; restore, recover, and sustain wildlife and fish – particularly rare animal 

and plant species –and those of economic significance to local communities, States and tribes; improve 

and restore range and forest vegetation conditions; control noxious weed and invasive species; mitigate 

and facilitate adaptation to the effects of global climate change; and provide effective long-term carbon 

sequestration.

Actions that may be accomplished under the Integrated 

Resource Restoration program include:

Restoration and Management of Ecosystems - Aquatic 

ecosystems management and restoration, includes 

actions to improve and restore fisheries habitat for 

native and endangered species such as improving water 

quality, substrate, streambank, riparian and watershed 

habitat conditions; controlling aquatic invasive species; 

increasing fishing opportunities and access; monitoring 

species status and project effectiveness; and reducing 

stream habitat fragmentation primarily by identifying 

priorities for restoring fish passage. 

Terrestrial ecosystem management and restoration 

includes the maintenance or improvement of wildlife habitat including threatened, endangered, and 

sensitive species; forest and rangeland vegetation improvement activities including prescribed fire 

and other mechanical treatments that improve resilience to impact by drought, insects, and disease; 

reforestation actions to restore and maintain appropriate 

vegetation type and cover on forest lands; timber sale 

planning and preparation with a strong emphasis on 

utilization of stewardship contracts and agreements for the 

purpose of restoring forest vegetation and watershed 

condition; administration of personal-use permits for 

firewood, Christmas trees, and other special forest and 

botanical products; management and treatment of noxious 

weeds and invasive species including the prevention, 

detection, containment, and eradication of invasive plant, 

vertebrate, non-vertebrate and pathogen infestations; conservation, maintenance and restoration of the 

soil resources that sustain healthy watersheds by reducing soil compaction and treating sediment 

sources; and managing and protecting air quality including review of State prepared regional haze 

implementation plans; review of Prevention of Significant Deterioration permits; and monitoring of 

air quality effects including visibility. 

Collaborative Forest Landscape Restoration Fund – Forest Landscape Restoration Act (16 U.S.C. 

7301-7304) (Pub. L. 111-11, Title IV, March 30, 2009, 123 Stat. 1141). This Act authorizes the 

ecosystem restoration of priority forest landscapes. The Collaborative Forest Landscape Restoration 

(CFLR) Program funds treatments that help recover ecosystem resilience and adaptive capacity of 

ecosystems that have been degraded, damaged, or destroyed. The CFLR Program may be used to pay 

Rare Plants and Steelhead

The Gifford Pinchot National Forest is 

responding to the effects of climate change 

by restoring key wetlands and native 

riparian plant communities along Trout 

Creek, which has critical habitat for the 

federally-listed Lower Columbia River 

steelhead. In addition to providing shade and 

moderating stream water temperatures, 

habitat conditions will be favorable to 

several sensitive plant species, including the 

coldwater Corydalis, and rare species of 

mosses and lichens. 
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 8 

for up to 50 percent of the cost of carrying out and monitoring ecological restoration treatments that 

occur primarily on National Forest System (NFS) lands. Funds may be used to restore natural fire 

regimes, improve wildlife corridors, make forests resilient to insect pests and disease, and control 

invasions of exotic species. These restoration projects will be of at least 50,000 acres in size. 

Potential projects must be proposed through multi-stakeholder collaborative planning. No more than 

$4 million of funds can be used for an individual project. Land areas for consideration must have a 

substantially complete restoration strategy, be primarily composed of forested National Forest System 

land, and be accessed by wood-processing infrastructure to use the woody biomass and smalldiameter wood removed during ecological restoration treatments.

Priority Watersheds and Job Stabilization – This activity also funds the restoration and maintenance 

of terrestrial and aquatic ecosystems, but focuses on watershed health and job creation. Under this 

initiative, Forest Service will conduct rapid watershed evaluations of all NFS lands. Each national 

forest will conduct an evaluation of its watersheds (6th Order HUC in size) in, on average, ten days,

and place each watershed into a more refined condition class that weighs the compilation of factors 

that influence watershed health. A strategic framework for assessing watersheds will be developed 

and used across the System to ensure consistency in evaluation. Priorities will be informed by 

identification in the State Forest Assessments, watershed condition, costs, and input from local 

communities. Also Forest Service will establish a monitoring program so that in five years the 

Agency will be able to tune and support its risk-based approach to assessing and improving watershed 

condition. Watershed restoration work will be prioritized based on the ability to improve the 

condition class of a watershed, or maintain the watershed in its current class. 

This activity also supports biomass utilization and exploring ways to use biomass outputs to create 

and secure green jobs in the places where long-term investments in infrastructure are most needed. 

Creating job opportunities for youth in rural areas is also an important part of this activity, and can be 

expediently and effectively accomplished by leveraging non-Federal resources for employment 

opportunities such as trail crews. 

All projects funded under this initiative would be subject to a new streamlined “objection process” 

that the Forest Service would like to pilot.

Allocation and Integration

The focus for all three activities is on watershed and ecosystem restoration projects implemented through 

an integrated suite of activities in targeted areas. Primary emphasis is on aquatic and terrestrial processes, 

conditions, and risks that can be influenced by Forest Service management activities. 

Restoration and Management of Ecosystems - Allocations to the regions represent a strategic 

investment of financial resources focused on sustaining, improving, and restoring our natural 

resources. Allocations will emphasize priority needs for watershed restoration and the need to sustain 

contributions to local communities and jobs, consideration of resource needs such as threatened, 

endangered, and sensitive species, air quality, invasive species, and those activities that are critical to 

the overall management of the national forests and grasslands. Allocations will also consider 

performance and accountability, partnerships, program management opportunities and needs, and the 

relative significance of watershed restoration priorities and opportunities. Adjustments may be made 

between regions based on capability information submitted by the regions, and to mitigate situations 

where proposed allocations would create an undesirable regional program. Some focusing of efforts 

will occur so that very large regions of the Country enjoy more attention than others. The longleaf 

pine ecosystem of the South or the portions of the Rocky Mountains impacted by bark beetles are 
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 9 

Preventing Aquatic Invasive Species

In collaboration with partners, the 

Willamette, Umpqua, Rogue RiverSiskiyou and Deschutes National Forests 

launched a high-profile campaign to help 

stop the spread of aquatic invasive species. 

Through extensive outreach, and more than 

a dozen training sessions, the “Never launch 

a dirty boat” and “Stop the aquatic 

invaders” programs have reached thousands 

of boaters, fishermen, and other outdoor 

enthusiasts throughout the Pacific 

Northwest. 

example areas. While the emphasis is on implementing restoration activities in priority areas (either 

at the forest level or at the national level), funds will also support core operations and management 

functions to prevent decline in the health and condition of the NFS ecosystems, lands, and wildlife 

and fisheries that inhabit these lands. 

Integration and collaboration with other programs not included in the Integrated Resource Restoration 

BLI is an important aspect of implementing management activities. Habitat restoration projects that 

benefit terrestrial species are enhanced and expanded by combining efforts with the Wildland Fire 

Management-Hazardous Fuels, and the State and Private Forestry-Forest Health programs. Aquatic 

species and their habitats also benefit from combining efforts with the Capital Improvement and 

Maintenance-Legacy Roads and Trails program. Coordinating efforts with the State and Private 

Forestry programs can result in a synergistic effect in restoring priority watersheds on a landscape 

scale.

Collaborative Forest Landscape Restoration Fund - Projects would be proposed by regional foresters 

and allocations would be made based on project selection by the Secretary of Agriculture, as advised 

by an advisory committee.

Watershed Improvement and Job Stabilization – The Agency will identify areas in most urgent need 

of restoration, through the Watershed Condition Assessment process - a rapid watershed evaluation 

method. The Watershed Condition Assessment would establish a systematic process to classify 

watershed condition that would be applied on all National Forest System lands. Benefits of such a 

classification include a national snapshot of current watershed condition, the ability to track changes 

over time, the data to evaluate costs and outcomes for performance accountability, and a consistent 

process for addressing watershed condition in land management plans. The watersheds identified as 

most important to the public will be brought forward for a more comprehensive evaluation. Proposed 

projects will be evaluated through a national prioritization process with final selections by the Chief 

of the Forest Service. 

Selection of biomass projects will favor proposals that are coordinated with other Federal and State 

land management agencies, as well as tribes; accomplish management objectives with regard to forest 

function and health; create jobs or contribute to job 

stability; and create or maintain traditional forest 

products or biomass/renewable energy development. 

Non-timber, forest jobs will be prioritized using the 

proportion of non-Federal matching funds and the 

number of jobs for youth that will be generated. 

Partnerships 

The Agency will continue to enhance program delivery and 

accomplishment through an extensive network of 

collaborators and long-term partners, Federal and State 

agencies, tribal governments, nongovernmental 

organizations, and local communities. 

Successful partnerships and collaborative efforts have led to the improvement of millions of acres of 

terrestrial habitat, and thousands of miles of streams for imperiled, common, and economically significant 

species throughout the Nation. These partnerships have increased Forest Service capacity to perform 

habitat management through sizeable contributions of matching funds and in-kind support from external 

partners. For decades, the agency has worked closely with State wildlife agencies; local communities; 
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 10 

civic organizations; and national conservation-oriented organizations such as The Nature Conservancy, 

Trout Unlimited, The National Fish and Wildlife Foundation, Rocky Mountain Elk Foundation, Ducks 

Unlimited, and the National Wild Turkey Federation. Annually, external partners help the agency 

complete over 2,000 wildlife and fisheries projects on national forests and grasslands. The dollar and inkind value of these efforts is typically over $40 million annually. 

The Forest Service has also entered into partnership agreements with several organizations (including 

American Forests, the National Arbor Day Foundation, and the National Garden Clubs) and businesses to 

increase the amount of NFS lands receiving reforestation treatments following catastrophic wildfires and 

other natural events. Through these partnerships, the Forest Service has planted over 6 million tree 

seedlings on approximately 15,000 acres.
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 11 

Budget Line Item Land Management Planning

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Land Management Planning

Annual Appropriations $48,833 $45,917 $440 -$399 $45,958 -1%

Land Management Planning Total $48,833 $45,917 $440 -$399 $45,958 -1%

Annual Appropriation FTEs 343 330 324

Total Full-Time Equivalents (FTEs) 343 330 324

Land Management Planning

Maintain Land Management Plans $26,723 $29,105 $297 -$458 $28,944 -2%

Create/Revise Land Management Plans $22,110 $16,812 $143 $59 $17,014 0%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Land Management Planning

Number of land management plan 

amendments underway 23 36 31 48 46 30

Number of land management plan revisions 

or creations underway 50 41 39 39 17 23

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $45,958,000 for Land Management Planning, a program

decrease of $399,000 from FY 2010. The Land Management Planning program will focus on completing 

land management plan (LMP) revisions using the 1982 procedures in the 2000 Planning Rule while 

completing work on the 2011 Planning Rule. A new planning rule will provide the opportunity to help 

protect, reconnect, and restore national forests and national grasslands for the benefit of human 

communities and natural resources. Developing this new rule will allow the Agency to integrate forest 

restoration, watershed protection, climate resilience, wildlife conservation, the need to support vibrant 

local economies, and collaboration into how the Agency manages national forests and grasslands, with the 

goals of protecting our water, climate, and wildlife while enhancing ecosystem services and creating 

economic opportunity. The full LMP revision schedule can be found in the “Revisions in Progress in FY 

2011” section listed below. Other high priorities for FY 2011 include completing critical LMP 

amendments and, if necessary, conducting roadless area evaluations.

Specific priorities within each activity include:

Maintain Land Management Plans (-$458,000) – The request includes $28,944,000 for the 

maintenance of LMPs. The agency will amend, correct or adjust as needed the 102 LMPs not 

currently being funded for revision, focusing on completing amendments to address critical issues. 

This level of funding will be used to work on 30 LMP amendments in FY 2011 that respond to 

energy corridor, travel management, and other activity decisions on specific national forests. Some 

units with completed LMP revisions will evaluate whether their LMPs need to be updated. Up-todate LMPs provide the basis for identifying projects and management actions that will help achieve 

desired conditions in line with agency goals and objectives. The planned number of amendments 

decreased in FY 2010 and FY 2011 over the FY 2009 actual level because some units were able to 

complete amendments related to the Eastern Energy Corridor EIS.
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 12 

In FY 2009, 48 land management plan amendments were underway. This is an increase from the planned 

level of 34. Many major LMP amendments take more than one year to complete. A number of 

amendments begun in FY 2008 were not completed that year while additional amendments were initiated 

during FY 2009 to update plans for decisions on travel management, minerals and geology leasing, 

healthy forests and threatened and endangered species. A large number of the amendments being worked 

on in FY 2009 will not be completed until FY 2010. 

Create/Revise Land Management Plans ($59,000) – The request includes $17,014,000 to fund and 

support LMP revisions. The funds will allow the agency to fund only 23 of the 37 revisions currently 

underway (see LMP Revision Schedule on following page). LMPs that are up-to-date in terms of 

desired conditions, objectives, and standards provide the basis for projects that will improve services 

and conditions on the ground. The agency intends to complete all revisions currently in progress by 

the end of FY 2014.

In FY 2009, the agency completed one of the 40 LMP revisions, leaving 39 LMP revisions on-going 

at the end of the fiscal year. The Beaverhead-Deerlodge National Forest completed its revision under 

the 1982 planning regulations. As a result of the resolution of litigation on the 2008 Planning Rule, 

the remaining revisions will either be completed using the 1982 procedures under the 2000 Planning 

Rule or a new rule expected to be completed in 2011.

 

Program Description

Program Overview

LMPs provide a long-term vision of the desired conditions that each National Forest System (NFS) unit 

hopes to achieve, and a management strategy for how to achieve them. To establish a framework for 

achieving this vision, each unit collaborates with the public to develop a strategic management plan 

addressing a wide variety of programs and issues. The LMP provides the basis for identifying, 

prioritizing, and implementing the programs and projects to move the unit towards achieving desired 

conditions and agency objectives. Such goals and objectives may include addressing climate change, 

ensuring abundant clean water, providing recreation opportunities, and restoring and maintaining forest 

and rangeland ecosystems.

6

12

30

66

84

93

99

116 118 119 120 120 124 125

10 12 12

19

25

35 41

54 55 55

55

56

56

1

9

0

20

40

60

80

100

120

140

19981999200020012002200320042005200620072008200920102011

Forest Plans

Fiscal Year

LMP Revision Schedule

Cumulative 1st Round Completions

Expected Completion Completed LMP's NFMA Original Schedule
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 13 

The National Forest Management Act (NFMA) requires that 

each unit of the NFS have a LMP that is formally revised 

every 10 to 15 years to address changing conditions and new 

information related to natural resources, management goals, 

and public use. 

The Land Management Planning program is delivered 

through the following activities:

Maintain Land Management Plans – LMP maintenance 

includes making amendments, corrections, and 

adjustments; conducting any analyses needed after legal notice initiating an amendment; and,

resolving any appeals, litigation, and objections to the amendment. 

Create/Revise Land Management Plans – Includes all work activities associated with LMP revision 

and creation including those identified in the 1982 procedures of the 2000 Planning Rule (e.g., public 

involvement, development of LMP components, content analysis of public comments, etc.). This 

activity also involves resolving appeals, litigation and objections to the LMP.

Allocation and Integration 

Funds for this program support the development, revision, and maintenance of LMPs. Priority is given to 

those units currently revising their LMPs under the current planning rule. Funds are allocated based on 

the number of LMPs in each region that are under revision and the number in a non-revision or 

maintenance mode. Additional funding is also allocated to field units that are conducting roadless area 

evaluations. The Land Management Planning program is closely integrated with activities funded by the 

Inventory and Monitoring program, such as LMP monitoring and LMP development assessments. These 

activities are discussed more fully under the Inventory and Monitoring section.

Partnerships 

Collaboration with partners and the public is critical to developing, revising or amending LMPs, and 

assists in identifying needs, establishing desired conditions, and crafting alternatives or scenarios for 

future management. Both in plan development and revision, agency field units work closely with citizens 

and organizations with an interest in how the land is managed.

Revising Land Management Plans

The Forest Service has developed 125

LMPs to guide the management of 155 

national forests, 20 grasslands, and 

other unique units of the NFS. Since 

the late 1980s, 56 LMPs have been 

revised, about 45 percent of the total. 

The first round of revisions is expected 

to be complete by FY 2018.
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 14 

Land Management Plan Revision Schedule

The following tables display the revision status of the 125 land management plans that currently exist. All 

units are national forests unless otherwise noted (e.g., NG = National Grassland). The NFS Region (e.g., 

R-1, R-2, etc.) for each unit is also provided. The George Washington NF plan is being revised for the 

second time – it currently shows up in two of the categories below.

Creations and Revisions Completed prior to FY 2011 (Total = 56)

R-1 Beaverhead-Deerlodge

R-1 Dakota Prairie NG

R-2 Arapaho-Roosevelt 

R-2 Black Hills 

R-2 Bighorn 

R-2 Medicine Bow 

R-2 Nebraska 

R-2 Rio Grande 

R-2 Routt 

R-2 Thunder Basin NG

R-2 White River 

R-4 Boise 

R-4 Caribou 

R-4 Payette 

R-4 Sawtooth 

R-4 Targhee 

R-4 Uinta 

R-4 Wasatch-Cache

R-5 Angeles

R-5 Cleveland

R-5 Los Padres

R-5 San Bernardino

R-8 Caribbean

R-8 Chattahoochee-Oconee

R-8 Cherokee

R-8 Croatan

R-8 Daniel Boone

R-8 Francis Marion

R-8 Jefferson

R-8 Kisatchie

R-8 Land Between the 

Lakes NRA (new plan)

R-8 NFs in Alabama

R-8 NFs in Florida

R-8 NFs in Texas

R-8 Ouachita

R-8 Ozark-St. Francis

R-8 Sumter

R-8 George Washington 

 (1st

 revision)

R-9 Allegheny

R-9 Chequamegon-Nicolet 

R-9 Chippewa

R-9 Finger Lakes

R-9 Green Mountain

R-9 Hiawatha

R-9 Hoosier

R-9 Huron-Manistee

R-9 Mark Twain 

R-9 Midewin National 

Tallgrass Prairie (new plan)

R-9 Monongahela

R-9 Ottawa

R-9 Shawnee

R-9 Superior

R-9 Wayne

R-9 White Mountain

R-10 Chugach

R-10 Tongass

Revisions in Progress in FY 2011 (Total = 37)

R-1 Bitterroot

R-1 Flathead 

R-1 Idaho-Panhandle*

R-1 Kootenai*

R-1 Lolo

R-1 Clearwater

R-1 Nez Perce

R-2 Cimarron-Comanche NG*

R-2 Grand Mesa, 

Uncompahgre, Gunnison

R-2 San Juan*#

R-2 Pike-San Isabel*

R-2 Shoshone* 

R-3 Apache-Sitgreaves*#

R-3 Cibola NG*#

R-3 Coconino* 

R-3 Coronado*#

R-3 Kaibab*#

R-3 Prescott* 

R-3 Tonto *

R-4 Dixie

R-4 Fishlake

R-4 Manti-La Sal 

R-4 Humboldt–Toiyabe

R-4 Bridger-Teton 

R-4 Ashley 

R-5 Lake Tahoe Basin*#

R-5 Modoc 

R-5 Sequoia* 

R-6 Fremont/Winema 

R-6 Colville* 

R-6 Malheur*

R-6 Okanogan/Wenatchee*

R-6 Umatilla* 

R-6 Wallowa-Whitman*

R-8 NFs in Mississippi*#

R-8 Uwharrie*#

R-8 George Washington*# 

 (2nd revision)

* Revisions funded in FY 2011 (23)

# Expected completions in FY 2011 (9)
FY 2011 Budget Justification USDA Forest Service

National Forest System 7 - 15 

Revisions starting in FY 2012 and Beyond (Total = 33)

R-1 Custer

R-1 Gallatin

R-1 Helena

R-1 Lewis & Clark

R-3 Carson

R-3 Cibola

R-3 Gila

R-3 Lincoln

R-3 Santa Fe

R-4 Salmon-Challis

R-5 Eldorado 

R-5 Inyo 

R-5 Klamath

R-5 Lassen

R-5 Mendocino 

R-5 Plumas 

R-5 Shasta-Trinity

R-5 Sierra 

R-5 Six Rivers

R-5 Stanislaus

R-5 Tahoe 

R-6 Deschutes 

R-6 Gifford Pinchot

R-6 Mt. Baker-Snoqualmie

R-6 Mt. Hood

R-6 Ochoco

R-6 Olympic

R-6 Rogue River 

R-6 Siskiyou 

R-6 Siuslaw 

R-6 Umpqua

R-6 Willamette 

R-8 Nantahala-Pisgah
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-16

Budget Line Item Inventory and Monitoring

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Inventory & Monitoring

Annual Appropriations $167,580 $170,502 $1,297 -$1,807 $169,992 -1%

Inventory & Monitoring Total $167,580 $170,502 $1,297 -$1,807 $169,992 -1%

Annual Appropriation FTEs 1,069 1,050 955

Total Full-Time Equivalents (FTEs) 1,069 1,050 955

Inventory & Monitoring

Conduct Strategic Resource Inventories $78,095 $76,476 $598 $388 $77,462 1%

Conduct Land Management Plan Monitoring $63,795 $67,514 $524 $273 $68,311 0%

Conduct Land Management Plan Assessments $25,690 $26,512 $175 -$2,468 $24,219 -9%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Inventory & Monitoring

Acres of inventory data collected and 

acquired N/A 20,860,388 25,223,812 55,191,314 23,200,000 21,520,000

Number of annual monitoring requirements 

completed N/A 1,487 2,021 1,462 1,285 1,400

Number of land management plan 

assessments completed 97 52 66 73 28 40

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $169,992,000 for Inventory and Monitoring, a program 

decrease of $1,807,000 from FY 2010. Inventory and monitoring of National Forests and Grasslands are 

a key component for determining the effectiveness of restoration treatments and other federal 

investments, as well as how ecosystems and watersheds are responding to climate change and natural and 

catastrophic events. This information supports and evaluates LMPs as well as strengthens landscapescale restoration and conservation.

National forests and grasslands will focus on monitoring LMP implementation, conducting 

comprehensive evaluations in advance of LMP revisions, and ensuring that inventories, data management, 

and corporate data systems support these business requirements. The agency will place priority on the 

acquisition of data to establish baselines for standard national and locally-specific desired conditions and 

to determine, through monitoring, the progress being made towards achieving those desired conditions 

and objectives in LMPs. The agency also intends to continue implementing the requirements of 

Executive Order 13423 for establishing an agency-wide environmental management system (EMS). 

Specific priorities within each activity include:

Conduct Strategic Resource Inventories ($388,000) – The request provides $77,462,000 for inventory 

of 21,520,000 acres on national forests and grasslands. Funding will support the continued inventory 

of high priority areas to support the establishment of future management direction in LMP revisions 

and amendments. Inventories will be conducted at the appropriate scales to establish baseline data for 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-17

LMP desired conditions and objectives. The agency will also continue the important work of 

integrating and improving databases and migrating applications and existing data to a centralized 

repository. These activities support project work on the ground and national and multi-unit level 

assessments.

In FY 2009, the agency inventoried 55,191,314 acres in support of the 125 LMPs being maintained or 

revised or for other forest-wide program needs. The agency exceeded its planned performance levels 

by 164 percent because individual national forests took advantage of opportunities to conduct more 

landscape-scale inventories covering larger amounts of acreage in preparation for LMP assessments, 

revisions, and amendments.

Conduct Land Management Plan Monitoring ($273,000) – The request provides $68,311,000 for 

1,400 LMP monitoring requirements on national forests and grasslands. The agency will emphasize

monitoring desired conditions and other LMP requirements, conducting annual evaluations, and 

reporting the results. Efforts will continue to identify minimum standardized monitoring 

requirements and information needs across national forests and grasslands associated with specific 

desired conditions and emerging issues such as climate change that will lead to efficiencies in data 

collection, mapping, storage, reporting, and utilization. Thirty-three units will begin revisions within 

the next three to four years. Those units are currently completing and compiling monitoring 

information to help determine how much change each LMP needs and the issues to be addressed. In 

addition, monitoring will assist the agency in future LMP assessments. 

In FY 2009, the agency conducted 1,462 of the highest priority annual monitoring requirements 

contained in the 125 LMPs being maintained or revised by the agency. This level exceeds the 

planned amount of 1,200 by 22 percent. The number of monitoring requirements completed each 

year is expected to increase over time as the agency moves towards standardizing the content of 

LMPs and the associated monitoring requirements.

Conduct Land Management Plan Assessments (-$2,468,000) - The request provides $24,219,000 for 

conducting LMP development and implementation assessments on national forests and grasslands. 

The agency will work closely with its researchers to ensure that quality data are available, scalable, 

reliable, and can be integrated within the national framework that the agency has established for 

EMS. The agency is expected to complete 40 assessments to address the requirements of the 2000 

Planning Rule, including the need to change direction, and identify projects to implement LMPs. 

The agency completed 73 LMP assessments in FY 2009, a significant increase over the planned level 

of 40. Ecological, social, and economic sustainability assessments and comprehensive evaluations 

will provide the basis for current and future revisions. Landscape-scale implementation assessments 

will assist in identifying projects that will assist units in achieving the desired conditions in their 

LMPs.

Program Description 

Program Overview 

The Inventory and Monitoring program funds the collection and analysis of integrated data in support of 

the development and revision of LMPs. The data also supports a variety of other business requirements 

and resource management needs. Examples of such data include vegetation condition, wildlife habitat, 

social and economic data, air, water and soil quality, and recreation visitor use. Inventory and monitoring

activities help establish baselines of information that are used to identify, prioritize, and frame objectives 

for achieving desired conditions. Specific program objectives include enhancing scientific understanding 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-18

of ecosystems; fulfilling agreements for inventory and monitoring results with partners; providing data, 

information, and analyses to decision makers in response to current management needs and emerging 

issues, including climate change; providing information necessary to assess viability and responsiveness 

of Forest Service programs; and supporting cost-effective program delivery.

The Inventory and Monitoring program is delivered through the following activities including the 

development, maintenance, and coordination activities in support of the following corporate applications 

and systems: ALP, Infra, NRIS, and GIS.

Conduct Resource Inventories – Provides resource inventories designed to meet LMP requirements. 

Resource inventory activities include data collection and acquisition, data entry (including migration 

of legacy data), and storage of data in corporate systems; data evaluation and analyses to ensure 

accuracy and determine data classifications; the documentation and implementation of quality control 

procedures and compilation of metadata; and resource mapping.

Conduct Monitoring and Evaluation – Provides monitoring, evaluation and reporting needed to 

support the determination of the need to change direction. This includes implementation and 

effectiveness monitoring needed to evaluate progress toward achieving the desired LMP conditions 

and objectives. The establishment of an EMS may be partially funded by the Inventory and 

Monitoring budget line item. An EMS is a tool that supports sustainable operations and focused 

natural resource management on activities to improve environmental performance at the forest level.

Conduct Land Management Plan Assessments –LMP development and implementation assessments 

evaluate current and desired resource conditions at or above the watershed scale. These assessments 

include determinations of ecological, social, and economic sustainability, as well as evaluations that 

determine the need to change direction. 

Allocation and Integration

Allocations are based on the number of units and total acreage in each region. Adjustments may be 

made between regions based on capability information submitted by the regions or to mitigate situations 

where a proposed allocation would create undesirable transition effects. 

Partnerships 

The Forest Service works with Federal, regional, and local partners to inventory and monitor its lands. 

Within the Federal Geographic Data Committee, the Forest Service has the lead responsibility to work 

with other agencies to set standards for vegetation classification. It also works with governmental and 

non-governmental partners to collect data and set inventory and monitoring protocols for consistent data 

collection methods.
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-19

Budget Line Item Recreation, Heritage and Wilderness

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Recreation, Heritage & Wilderness

Annual Appropriations $277,635 $285,117 $3,035 $5,000 $293,152 2%

Recreation, Heritage & Wilderness Total $277,635 $285,117 $3,035 $5,000 $293,152 2%

Annual Appropriation FTEs 2,279 2,285 2,345

Total Full-Time Equivalents (FTEs) 2,279 2,285 2,345

Recreation, Heritage & Wilderness

Manage Recreation Operations $162,342 $156,411 $1,596 $3,149 $161,156 2%

Administer Recreation Special Use Authorizations $40,432 $45,709 $511 $291 $46,511 1%

Manage Heritage Resources $29,893 $33,417 $350 $757 $34,524 2%

Manage Wilderness & Wild & Scenic Rivers $44,968 $49,580 $578 $803 $50,961 2%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Recreation, Heritage & Wilderness

Number of recreation site capacity (PAOT 

days) operated to standard 82,482,208 69,686,938 72,288,992 74,364,856 78,800,000 79,780,000

Percentage of NFS lands covered by travel 

management plans resulting in visitor safety, 

resource protection using best management 

practices, and less visitor conflict with offroad vehicle usage 0.3% 13.0% 27.0% 43.7% 98.0% 100.0%

Number of recreation special use 

authorizations administered to standard 10,091 9,524 13,119 21,070 13,250 13,250

Number of priority heritage assets managed 

to standard N/A 1,982 2,830 3,447 3,030 3,250

Number of wilderness areas managed to 

minimum stewardship level 61 67 102 128 138 204

Number of wild and scenic river areas meeting 

statutory requirements 47 45 28 39 41 43

Customer satisfaction with value for fee paid N/A 83% 83% 83% 85% 85%

FY 2011 Program Changes

The President’s Budget proposes $293,152,000 for the Recreation, Heritage and Wilderness program, a

program increase of $5,000,000 from FY 2010. The Fifth Pillar for Secretary Vilsack’s High Priority 

Performance Goal for Creating Prosperity in Rural Communities is to generate green jobs by increasing 

recreation opportunities. Forest Service is the lead USDA agency for this Pillar, and the Recreation 

program serves as the base for this job creation focusing of efforts. The program will continue to 

implement the Recreation Strategy, which, over a period of years, will help the agency unite diverse 

interests, create and strengthen partnerships, focus on mission-driven priorities, connect recreation 

benefits to communities, provide for changing urban populations, and sustain and expand quality 

recreation opportunities. The $5 million proposed increase is for implementation of the Agency’s 

developed travel management plans. Additional funds from the Recreation, Heritage and Wilderness 

budget line will also be used to further the Agency’s travel management efforts (particularly the 

development of Motor Vehicle Use Maps). Implementation will be guided by FS’ ”Travel Management 

Implementation Guide,” which lays out necessary activities in four categories: Education, Enforcement, 

Engineering, and Evaluation. Priority for the remaining funds will continue to be placed on leveraging 

volunteer resources to create jobs for youth in rural areas, decisions resulting from the Recreation Facility 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-20

Assessment (RFA) process, and the 10-year Wilderness Stewardship Challenge. The agency will establish 

and strengthen partnerships, particularly those that help deliver youth programs, and those that provide 

stewardship of wilderness and wild and scenic rivers. The request reflects program efficiencies gained 

through the agency’s improved use of revenue and cost data, resource assessments, and business planning 

to drive management decision-making. Agency emphasis will focus on planning and facilitating desired 

program outcomes and tapping the skills and creativity of both public and private partners.

Specific priorities within each activity include:

Manage Recreation Operations ($3,149,000) – This request provides $161,156,000 for Recreation 

Operations. Funding is requested to complete travel management planning for the remaining 

administrative units, covering 100 percent of National Forest System (NFS) acres. Current and 

accurate maps allow recreation visitors to understand 

where they are allowed to operate motor vehicles on 

NFS administered lands. Travel management planning 

involves appropriate environmental analysis, public 

participation, coordination with State, county and local 

governmental agencies, and tribal governments, and 

will assist in a reduction of redundant or unutilized 

roads as well as increases in recreation opportunities 

for motorists. This is a critical first step in “rightsizing” the Agency’s road system. 

Funding is also requested to continue implementing the 

results of the RFA process for all national forests. 

RFA results are used to prioritize recreation site facilities that meet public needs and desires, while 

evaluating operational costs in order to maintain desired quality standards. The primary goals of the 

RFA are to reduce deferred maintenance, improve cost-benefit analysis, and to focus investments by 

prioritizing recreation sites that are responsive to the public’s needs. To date, 115 national forests 

have completed RFA and have produced a 5-year Program of Work in order to prioritize recreation 

site investments in response to public needs. All national forests were completed with their recreation 

site analysis at the end of FY 2009.

The Forest Service planned to have 70 percent of NFS lands covered by travel management plans by 

the end of FY 2009, but only accomplished 44 percent coverage. For a number of national forests, 

the amount of time needed to complete the process resulting in a motor-vehicle use map (MVUM) 

was more than anticipated. Some units found travel planning elements were more complex than 

originally anticipated, such as developing a proposed action; completing the environmental analysis; 

involving the public; tribal consultation; and coordination with State, county, and local governmental 

entities. In addition, the amount of time to collect data, perform mixed use analyses, and update GIS 

and Infra data required to produce a MVUM was sometimes more than anticipated. Appeals have 

also delayed production of many MVUMs. The current projection for completion of all travel 

management plans is December 2010.

Administer Recreation Special Use Authorizations ($291,000) – This request provides $46,511,000 

for Recreation Special Use Authorizations. Funding is requested to administer approximately 33 

percent of special use permits to standard. Special use concessions are an important tool for 

delivering services at Forest Service recreation sites. Concessionaires operate a majority of the 

Youth Engagement Strategy (YES)

Through partnerships, the Sisters Ranger 

District in the Pacific Northwest Region is

developing sustainable long-term 

relationships and outreach programs to 

connect kids with nature, expanding their 

appreciation of the natural world and the

need to protect it. With the Arts Discovery 

Class and youth programs at Caldera, a local 

non-profit, the District will explore ways to 

help reconnect youth to the outdoors. 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-21

recreation sites to accommodate visitor demands. Administering and monitoring these uses ensures 

that they serve the interest of the American people and provide protection of natural resources. The 

activity also ensures that the agency receives fair market value for the uses that occur on its public 

lands. 

In FY 2009, the agency surpassed its target for administering recreation special use authorizations, 

accomplishing 160 percent of the target. The majority of this increase is due to the re-issuance of 

special use permits for recreation residences in the Rocky Mountain, Intermountain, Pacific 

Southwest, and Pacific Northwest Regions. The Special Use Data System (SUDS) captures 

administration of both the old permit and the new permit the year a permit is reissued. Consequently, 

the large number of accomplishments is an anomaly due to the once in a 20-year cycle for reissuance 

of recreation residence permits. Ongoing improvements to the Special Uses database are expected to 

improve accuracy in accounting and consistency between targets and accomplishments.

Manage Heritage Resources ($757,000) – This request provides $34,524,000 for Heritage Resources. 

Funding is requested to manage 3,000 priority heritage assets (PHAs) to standard. PHAs are those 

heritage assets recognized through a special designation (i.e., National Register of Historic Places) or 

prior investment in preservation, interpretation, and use. Implementation of the Preserve America 

Executive Order 13287 will also continue, including a multi-year effort to provide challenge costshare funding to the field to: 1) rehabilitate significant heritage assets that are linked to community 

economic development and sustainable “green footprints;” 2) evaluate and obtain more useful asset 

inventories; and, 3) reduce deferred maintenance backlog. Emphasis will also be placed on obtaining 

environmental data from cultural resource investigations to aid in climate change studies.

In FY 2009, the agency exceeded its target for managing its priority heritage assets, accomplishing 

120 percent of the target. The majority of the priority assets currently managed to standard have 

little-to-no deferred maintenance, which enabled them to be easily brought to standard. In future 

years, managing priority heritage assets to standard, with more expensive deferred maintenance, will 

be more challenging to accomplish.

Manage Wilderness and Wild and Scenic Rivers ($803,000) – This request provides $50,961,000 for 

Wilderness and Wild and Scenic Rivers. Funding is requested to bring an additional 66 wilderness 

areas to minimum stewardship level as part of the 10-year Wilderness Stewardship Challenge, 

bringing the total to 204, or 47 percent of the total designated wilderness areas managed by the Forest 

Service. A total of 43 wild and scenic river areas will meet statutory requirements under the Wild and 

Scenic Rivers Program Agenda. The program will focus attention on ensuring wilderness and wild

and scenic river values are adequately addressed in overall forest planning. 

In FY 2009, the agency managed a total of 128 wilderness areas to a minimum stewardship level, 

exceeding the target by 14 percent. During FY 2009, 39 wild and scenic rivers were also determined 

to meet statutory requirements, exceeding the target by 30 percent. This increase reflects greater than 

anticipated program emphasis in the Southern and Eastern Regions.

Program Description 

Program Overview

The National Forest System (NFS) offers a vast and diverse array of recreational opportunities across its 

193 million acres of national forests and grasslands. In FY 2008, approximately 176 million visits 

occurred on the national forests, with an increasingly diverse demographic of visitors engaging in 

activities such as camping, picnicking, winter sports, hunting, fishing, hiking, driving for pleasure, and 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-22

visiting cultural sites and visitor centers. Population growth, combined with the decline of public access 

to privately-owned land, is resulting in high demand for NFS lands to provide quality outdoor recreational 

opportunities. 

The Recreation, Heritage and Wilderness program manages and administers over 17,600 recreation sites, 

approximately 41,000 recreation special use authorizations, 37 major visitor centers, 20 National Historic 

Landmarks, approximately 331,000 heritage assets, 440 designated wildernesses, and 122 wild and scenic 

rivers.

The program is delivered through the following activities:

Manage Recreation Operations – Provides for the operation of developed sites, such as campgrounds, 

day-use areas, boat ramps, solid waste disposal facilities, and visitor centers; general forest areas, 

including snow play areas, lakes, streams, and roads; and interpretive and educational services. 

Activities provided for include conducting recreation planning, cleaning facilities and sites; providing 

safety and security measures for visitors and employees; conducting prescribed inspections; managing 

partnerships and volunteers; and providing interpretive or educational programs, presentations, and 

products to visitors. 

Administer Recreation Special Use Authorizations – Provides for the processing of new requests for 

recreation special use permits and the administration of existing authorizations to include permits for 

downhill ski areas, campground management, organization camps, and outfitting and guiding. 

Activities include providing responses, analyses, and decisions to proponents and applicants that 

request the use of NFS lands to support the provision of recreation opportunities and benefits to forest 

visitors. Activities also include providing inspection, oversight, and monitoring of authorizations 

issued to ensure compliance with the terms and conditions of the authorization. Recreation 

opportunities are made possible through special use authorizations.

Manage Heritage Resources – Provides for the protection of significant heritage assets and 

contributes interpretive, educational, site stewardship, and scientific and technical information to 

governmental entities, the public, and tribes. Activities include identifying, evaluating, protecting, 

monitoring, and preserving heritage resources, sites and areas; and promoting heritage values through 

interpretation, Passport in Time (PIT) projects, presentations, and other public information and 

outreach efforts. 

Manage Wilderness and Wild and Scenic Rivers – Provides for the protection of designated 

wilderness and wild and scenic rivers. Evaluates and makes recommendations for areas and rivers 

worthy of addition to the National Wilderness Preservation System and the National Wild and Scenic 

Rivers System. Activities include managing visitor use and impacts, education and outreach, 

inventory and monitoring, information management, fire management planning, invasive species 

management, protecting wilderness character for designated wilderness, and protecting free-flowing 

conditions for wild and scenic rivers through collaborative public, private, and interagency 

management. 

Allocation and Integration 

Funding allocations are based on a process that combines support for core operations and national 

priorities with a set of competitive criteria that compares regional performance and needs. These

performance elements and needs include developed recreation site use; processing and administering 

special use permits; and managing wilderness areas, wild and scenic rivers, and priority heritage assets. 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-23

Adjustments may then be made between regions based on capability information submitted by the regions 

or to mitigate situations where proposed allocations would create undesirable transition effects. 

For the funding associated with travel management implementation, funds will be allocated to national 

forests that have completed their travel management plans, have produced MVUMs, and have itemized 

their Education, Enforcement, Engineering, and Evaluation needs to synchronize their road system with 

their MVUMs. Also, a portion of the Recreation, Heritage and Wilderness funds will be allocated to 

Regions to create non-timber, green jobs for youth in rural areas. These funds will be allocated 

maximizing non-Federal cost-shares and number of jobs to be created.

Integration with other land and resource programs occurs within the recreation and wilderness program in 

order to achieve multiple management objectives. Examples include coordinating travel management 

planning with the Capital Improvement and Maintenance programs to meet integrated goals and targets; 

coordinating with Urban and Community Forestry to address interpretation and education needs that 

connect the American public to nature; identifying and pursuing acquisition of needed access with and 

through the Landownership Management program; utilizing Research and Development programs to 

address the effects of climate change on wilderness area attributes; and seeking expanded partnerships 

with the Wildlife and Fisheries Habitat Management program to enhance opportunities for natural 

encounters and outdoor experiences. This integration increases efficiency, provides public outreach, 

ensures resources are protected, and ensures high public confidence in Forest Service management.

Partnerships 

The public’s use and enjoyment of resources on national 

forests and grasslands is enhanced through a variety of 

partnerships, including volunteers and non-governmental 

organizations (NGOs) such as outfitting and guiding, ski 

areas, and campground concessionaires. This program 

consistently involves the highest number of volunteers within 

the agency. Volunteers contribute significantly to the 

management of heritage resources, interpretive services, trail 

maintenance, youth programs, and campground management. 

In addition, this program works at a national level with 

partners, such as the National Forest Foundation, American 

Rivers, and the River Management Society, on wilderness and 

wild and scenic river volunteer recruitment and project accomplishment, and with the WILD Foundation 

on international skill exchanges. Outreach and collaborative planning with communities and other 

recreation providers also fosters delivery of services and economic benefits across the landscape. 

Leveraging Volunteer Resources

In FY 2009, over 90,000 volunteers 

contributed $51 million worth of work 

through recreation and heritage 

resource activities. This represents 83

percent of the $61.5 million total 

appraised value of volunteer work, 

representing nearly 83 percent of the 

agency’s 1,722 person-years total.
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-24

Budget Line Item Grazing Management

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Grazing Management

Annual Appropriations $50,000 $50,714 $559 -$765 $50,508 -2%

Grazing Management Total $50,000 $50,714 $559 -$765 $50,508 -2%

Annual Appropriation FTEs 436 425 412

Total Full-Time Equivalents (FTEs) 436 425 412

Grazing Management

Manage Grazing Allotments $26,086 $28,568 $273 -$4,156 $24,685 -15%

Prepare Grazing Allotment NEPA $23,914 $22,146 $286 $3,391 $25,823 15%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Grazing Management

Allotment acres administered to 100% of 

Forest Plan standards 49,583,208 42,775,483 36,119,640 35,774,408 30,665,909 29,420,000

Number of grazing allotments with signed 

decision notices 443 670 470 370 466 460

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $50,508,000 for Grazing Management, a program decrease of 

$765,000 from FY 2010. The proposed program of work balances management of livestock grazing on 

approximately 90 million acres of National Forest System (NFS) lands, plus approximately 10 million 

acres of private land within grazing allotments, with completion of National Environmental Policy Act 

(NEPA) analysis on grazing allotments. Overall program emphasis will be to continue to implement the 

NEPA schedule established under the provisions of the Rescissions Act of 1995 (P.L. 104-19, section 

504). Permit administration will remain at a reduced level to focus adequate resources on NEPA 

accomplishment. Program benefits include development and implementation of improved grazing 

management practices when necessary to support ecosystem restoration efforts; while providing a 

sustainable supply of forage for livestock and wildlife, economic opportunity for rural communities, and 

maintain working landscapes associated with open space and habitat connectivity across NFS and 

associated private lands.

Specific priorities within each activity include:

Manage Grazing Allotments (-$4,159,000) – The request provides $24,685,000 to administer an 

estimated 29,420,000 acres (29 percent) of grazing allotment acres to 100 percent of standard, down 

from 35,774,408 acres (35 percent) in FY 2009. The projected decrease in FY 2011 is a result of a 

shift of resources within the program to accomplish the required analysis under for NEPA the 

allotments. The “Allotment Acres Administered to 100% of Forest Plan Standards” performance 

measure reflects the level of permit administration relative to implementation of all grazing 

management direction prescribed in land management plans, project level NEPA decisions, grazing 

permits or agreements, and other relevant documents. All grazing allotments are administered, 

although to varying degrees. Priority is placed on administering allotments with known critical 

resource issues, such as endangered species habitat. Administering allotments to standard assures that 

management actions identified during the NEPA process are implemented, are meeting the desired 

outcomes, and that adaptive strategies are implemented if the initial actions are not effective. 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-25

In FY 2009, the Forest Service administered 35,774,408 (or 34.9 percent) allotment acres to 100 

percent of standard, approximately 4 percent above the targeted level. As additional grazing 

allotment NEPA analyses are completed, permit administration complexity and the cumulative 

workload increases. This, combined with the need to shift additional available resources to the 

grazing NEPA activity, results in the projected decline in the number of allotment acres administered 

to 100 percent of standard in FY 2011. 

Prepare Grazing Allotment NEPA ($3,391,000) – The request provides $25,823,000 to complete 

grazing NEPA analysis and decisions for an estimated 460 grazing allotments. The proposed funding 

reflects a significant shift of resources from permit administration to completion of allotment NEPA. 

Recognizing that many controversial and complex allotments remain on the schedule of allotments 

needing analysis and NEPA; the program reflects an anticipated increase in NEPA analysis unit costs. 

The proposed funding level supports the agency’s commitment to meet the NEPA schedule. 

Effective NEPA analysis and decisions ensure that livestock grazing strategies are designed to 

provide for the restoration and long- term sustainability of rangeland vegetation and dependent 

resources while providing essential goods and services that society values. 

In FY 2009, the agency completed NEPA analysis for 370 allotments or 80 percent of the target. 

Several factors lead to the shortfall in NEPA accomplishments including: increased complexity of 

analysis, increased workload associated with appeals and litigations, and increased need for 

comprehensive resource condition and trend data to support decisions.

Program Description

Program Overview

The Grazing Management program manages the diverse rangeland resources on approximately 90 million 

acres of National Forest System (NFS) lands to maintain a sustainable supply of forage for livestock and 

wildlife. The program seeks to maintain open space and habitat connectivity by linking NFS grazing 

authorizations to privately owned lands managed for agricultural production, and by helping sustain the 

rural based ranching and farming lifestyle. Activities include environmental planning and NEPA 

compliance for the use of grazing allotments, and grazing permit administration. Administration to 100 

percent standard also requires both compliance and effectiveness monitoring as identified in the Forest 

land management plan and the allotment specific NEPA document. By administering grazing permits to 

100 percent standard, the agency ensures that grazing on NFS land is managed to facilitate ecosystem 

restoration and maintenance at both the allotment and landscape scale, and that water resources associated 

with grazing allotments are managed for sustained quality and quantity.

The program is delivered through the following activities:

Manage Grazing Allotments – Provides for the administration and monitoring of grazing permits and 

activities. This includes issuance of grazing permits, processing permit transfers, preparation and 

processing of bills for collection, and development of annual operating instructions. Compliance 

monitoring determines if the terms and conditions of the grazing authorization are being implemented 

by the grazing permittee. Effectiveness monitoring determines whether the evaluated acres meet, do 

not meet, or are moving towards resource objectives identified in the land management plan or other 

appropriate decision document, and determines whether additional monitoring or adjustments in 

management are required. 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-26

Prepare Grazing Allotment NEPA – Involves all elements of NEPA compliance pertaining to 

decisions authorizing grazing allotments, including the resolution of appeals and litigation associated 

with these decisions. This activity includes inventory of rangeland resource conditions; management 

of public involvement in the decision process; coordination with Federal, State, tribal, and local 

governments; development of alternatives; analysis of environmental effects; and preparation of the 

NEPA documents. The agency strives to incorporate adaptive management into grazing NEPA 

decisions. These strategies are designed to maximize management flexibility for the grazing 

permittee with a concurrent increase in accountability for success in meeting desired resource 

conditions.

Allocation and Integration

Funding is allocated to the field based on criteria that include the number of term grazing permits, the 

number of acres in active allotments, scheduled NEPA workload, and the number of grazing allotments 

with NEPA decisions during the previous three fiscal years. Adjustments may then be made between 

regions based on regional capability information or to mitigate situations where proposed allocations 

would create undesirable transition effects.

Partnerships

The agency supplements its capability to accomplish grazing permit administration through a variety of 

partnerships. Grazing permittees may be certified to conduct utilization monitoring, and may provide 

documentation demonstrating compliance with livestock distribution and other management 

requirements. Special interest groups also enter into agreements to conduct implementation monitoring, 

often in coordination with the grazing permittee. 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-27

Budget Line Item Minerals and Geology Management

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Minerals & Geology Management

Annual Appropriations $85,470 $87,240 $716 -$590 $87,366 -1%

Minerals & Geology Management Total $85,470 $87,240 $716 -$590 $87,366 -1%

Annual Appropriation FTEs 552 528 527

Total Full-Time Equivalents (FTEs) 552 528 527

Minerals & Geology Management

Administer Minerals Operations $29,309 $30,329 $279 -$402 $30,206 -1%

Process Mineral Applications $22,046 $22,533 $208 -$313 $22,428 -1%

Manage Geologic Resources & Hazards $8,468 $7,941 $80 $567 $8,588 7%

AML Safety Risk Mitigated $6,272 $7,921 $78 $291 $8,290 4%

Manage Environmental Compliance $2,759 $2,041 $19 $33 $2,093 2%

Manage Environmental Restoration $16,616 $16,475 $52 -$766 $15,761 -5%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Minerals & Geology Management

Number of mineral operations administered 15,152 11,718 14,857 14,613 12,350 12,350

Number of mineral applications processed 11,632 10,604 12,649 11,187 9,840 9,840

Number of new Applications for Permits to 

Drill (APDs) processed within prescribed 

timeframes 115 502 109 112 325 325

Number of AML safety risk features 

mitigated to "no further action" 346 403 494 519 662 680

Number of administrative units where audits 

were conducted 20 0 28 25 26 26

Number of contaminated sites mitigated N/A N/A 47 75 32 32

FY 2011 Program Changes 

The FY 2011 President’s Budget proposes $87,366,000 for Minerals and Geology Management, a 

program decrease of $590,000 from FY 2010. The program will emphasize environmental review of 

proposed operations, including processing the backlog of oil and gas lease applications. Other priorities 

include inspection and monitoring of ongoing mineral operations, providing professional expertise to 

ensure watershed health and public safety, and managing significant geologic resources. Specific 

priorities within each activity include:

Administer Mineral Operations (-$402,000) – The request of $30,206,000 will fund the 

administration of an estimated 12,350 active mineral operations in FY 2011. The program will 

emphasize meeting minimum administration levels to ensure compliance with operating plan 

requirements, to ensure meeting specific environmental standards and protecting resources.

In FY 2009, the agency administered 14,613 mineral operations, or 108 percent of the target. The 

increase in accomplishment is due, in part, to market conditions resulting in high commodity prices, 

which led to an increase in the number of active operations requiring administration. Predicting 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-28

actual accomplishment is difficult because the number of operations requiring administration is tied to 

external factors such as fluctuating markets.

Process Mineral Applications (-$313,000) – The request of $22,428,000 will fund processing an 

estimated 9,840 mineral application in FY 2011. The actual number of applications received in FY 

2011 may vary significantly due to market influences and variable demand for mineral resources from 

NFS lands. Processing mineral applications provides a valuable service to the public and ensures 

environmental standards and considerations are met. The energy component of this activity will 

focus on increasing opportunities for development and supply of oil and gas, coal, and geothermal 

resources from Federal lands, in support of the Energy Policy Act (EPA) of 2005. The EPA pilot 

offices will continue to help the agency efficiently process energy leasing and permit applications, 

particularly with respect to eliminating the backlog of oil and gas lease nominations and surface use 

plan of operations (SUPOs) relative to applications for permits to drill (APDs).

In FY 2009 the agency processed 11,187 mineral applications, or 102 percent of the target. The 

increase in accomplishment is due, in part, to the variability of the market and uncertainty of the 

number of requests from the public. While budget emphasis on processing was reduced in FY 2008 

and FY 2009, resulting in a reduced target compared to previous years, the agency is statutorily 

required to process mineral operations. However, the agency processed 93 SUPOs in support of 

APDs. Pending litigation and court decisions have affected the performance of the energy minerals 

program. These energy mineral applications submitted to the Forest Service cannot be processed 

until these legal and policy matters are resolved.

Manage Geologic Resources and Hazards ($567,000) - The request of $8,588,000 will fund the 

identification and management of an estimated 590 geologic resources and hazards. Identifying and 

managing geologic hazards provides for the health and safety of the public by protecting the 

infrastructure, soil, and groundwater. The geologic component of this activity provides information 

on geologic and paleontologic conditions informing land management decisions and project design, 

evaluates resources such as ground water, and protects sites that have scientific or educational use.

In FY 2009, the agency managed 250 geologic hazards and 544 geologic resources for a combined 

accomplishment of 145 percent of the target. Planned targets were based on the best estimate of 

ability to accomplish in the field.

Abandoned Mine Land (AML) – Safety Risk Features Mitigated ($291,000) – The request of 

$8,290,000 will fund the mitigation of an estimated 680 abandoned mine sites. The AML program 

focuses specifically on cleaning up abandoned mines in high priority watersheds. In addition to 

cleanup projects, the program is establishing an environmental management system that includes 

environmental compliance audits to systematically improve environmental performance of the 

agency. 

 

In FY 2009, the agency mitigated 519 safety risk features, or 100 percent of planned.

Manage Environmental Compliance ($33,000) – The request of $2,093,000 will fund 26 

environmental compliance audits. These audits are an important tool to assure that employee and 

public health and safety are protected through agency compliance with environmental laws and 

regulations. 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-29

In FY 2009, the agency completed 25 environmental compliance audits, or 96 percent of the target. 

Manage Environmental Restoration (-$766,000) – The request of $15,761,000 will fund the 

mitigation of 21 known hazardous material sites on NFS lands. The costs for each site vary widely, 

as does the total number of identified sites. Cleanup of sites contaminated with hazardous materials is 

critical for the long-term protection of surface and groundwater quality, as well as wildlife habitat, 

and public health and safety. Cleanup of hazardous substances on NFS lands improve and protect 

watershed conditions and human and ecological health. Since FY 2010, the agency no longer receives 

funds from the USDA Central Hazardous Materials Management Appropriation for use on

Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) and Resource 

Conservation and Recovery Act (RCRA) cleanup projects.

In FY 2009, the agency mitigated 75 contaminated hazardous material sites, or 357 percent of target. 

The increase in accomplishment is due, in part, to identifying previously unknown sites in an area or 

drainage and adding those sites to an ongoing cleanup project at an economic cost savings.

Program Description

Program Overview

The Minerals and Geology Management program is responsible for managing mineral and energy 

development activities, assessing geologic hazards and associated risks, interpreting and protecting 

geologic resources, controlling pollution, and cleaning up abandoned mines and other contaminated sites 

on 193 million acres of NFS lands. 

The value of all energy and mineral production from NFS lands typically exceeds $2 billion per year. 

Over 5 million acres of NFS lands are leased for oil, gas, coal, and phosphate. At any given time, the 

Forest Service administers operations on approximately 90,000 mining claims, and manages 

approximately 8,000 mineral material sale contracts. In addition, the Forest Service works to mitigate 

potential threats to the environment and human safety associated with thousands of abandoned mines and 

other contaminated sites located on NFS lands. NFS lands also contain geologic resources including 

caves and rare fossils, and are the largest single source of municipal water supply in the U.S., serving over 

66 million people in 33 states. 

The Minerals and Geology Management program is delivered through the following activities: 

Administer Mineral Operations – Provides for the inspection, oversight, and monitoring of approved 

mineral operations on NFS lands. Administration ensures compliance with approved plans, and with 

State and Federal environmental laws and regulations, for the protection of public health and safety.

Process Mineral Applications – Provides for the review and approval of plans for proposed mineral 

activities including exploration and development of hardrock minerals under the authority of the 

Mining Act of 1872; coal, oil, gas, and geothermal exploration and production under the various 

mineral and geothermal leasing acts; and contracts for the extraction of mineral materials such as sand 

and gravel, by the public and local, State, and Federal agencies under the Materials Act of 1947. 

Manage Geologic Resources and Hazards – Provides assessments of geologic settings and active 

geomorphic processes for land management planning, environmental protection and restoration, and 

cost effective management of roads, recreation sites and other infrastructure. Inventories and 

manages geologic resources such as caves and karst areas, paleontological resources, ground water, 

and ground water-dependent ecosystems, for their protection, study, and appropriate uses. Under this 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-30

activity, the program identifies, assesses, and manages potential risks to public health and safety from 

soil and water contamination and geologic hazards, such as landslides, debris flows, and karst 

collapse features. 

Mitigate Abandoned Mine Lands (AML) Safety Risk Features – Provides for the inventory, 

assessment, and mitigation of abandoned mine safety hazards and associated environmental damage. 

This work includes closing underground mine openings and vertical shafts; re-contouring open pits, 

trenches, and associated roads; and removing or stabilizing abandoned buildings, equipment, and 

hazardous materials. Wherever feasible, AML work will minimize or mitigate adverse effects on 

AML dependent wildlife and cultural and historic resources. 

Manage Environmental Compliance – This activity funds a national audit program which assesses 

Forest Service compliance with environmental statutes and trains field personnel on compliance and 

pollution prevention.

Manage Environmental Restoration – Environmental restoration provides for the inventory, 

assessment, and cleanup of sites where there is a release, or threat of release, of a hazardous 

substance, pollutant, or contaminant. Restoration could occur at AML and non-AML sites and 

involve CERCLA and non-CERCLA authorities. This restoration helps minimize or eliminate threats 

to human health and the environment. Cleanup projects are typically initiated under requirements of 

CERCLA, RCRA, or the Clean Water Act.

Allocation and Integration

Allocation criteria include projected workload in response to new and ongoing mineral exploration, 

development, production and reclamation activities; number of abandoned mines, the severity of existing 

hazards, and the probability of human contact; projected need for inventory, interpretation, and protection 

of geologic resources; number of required environmental audits; and nationally prioritized environmental 

cleanup projects. Adjustments may be made between regions based on regional capability data or to 

mitigate situations where proposed allocations would create undesirable transition effects.

Integration with other resource programs is a priority. This helps maximize the achievement of multiple 

resource management objectives that facilitate environmentally sound mineral development and maintain 

and restore healthy watersheds. This integration is designed to ensure compliance with applicable 

environmental laws and regulations, minimize impacts, and maximize the achievement of diverse 

resource objectives that are compatible with program activities. Some such activities include 

interpretation of culturally significant sites, restoration of water quality, and protection of threatened and 

endangered species. 

Partnerships 

The Forest Service works in partnership with the Bureau of Land Management (BLM) to manage the 

Federal minerals on NFS lands. The Secretary of the Interior, through the BLM, has management 

responsibilities for the Federal mineral estate, including Federal minerals that underlie NFS lands. The 

Forest Service is responsible for the management of surface resources on mineral, oil, and gas projects 

proposed and operating on NFS lands. Mineral receipts are derived from annual lease rentals, royalties on 

production, bonus bids for competitive leases, and mineral material sales. Of the total revenues received, 

between 25 percent and 50 percent is returned to the State and county where production occurred. The 

Forest Service is developing partnerships with geologic and hydrologic organizations to help raise 

awareness of the importance of managing geologic hazards and geologic resources on NFS lands, and the 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-31

application of geologic principles to sound and sustainable management of those lands. In addition, these 

partnerships will help improve awareness of the role of NFS lands in supplying ground and surface water 

to meet societal needs.

Emphasis for the ECAP and AML activities includes cost recovery and efficient and effective use of 

partnerships to restore and remediate abandoned mine lands and disturbed ecosystems. Costs may be 

recovered when the potentially responsible party is identified prior to restoration work. Cooperative 

partnerships with other government agencies and non-profit organizations supplement appropriated funds 

to inventory and assess geologic resources and restore streams and watersheds. 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-32

Budget Line Item Landownership Management

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Landownership Management

Annual Appropriations $93,299 $95,606 $951 -$1,234 $95,323 -1%

Landownership Management Total $93,299 $95,606 $951 -$1,234 $95,323 -1%

Annual Appropriation FTEs 707 710 700

Total Full-Time Equivalents (FTEs) 707 710 700

Landownership Management

Adjust Land Ownership $14,106 $13,886 $93 -$1,221 $12,758 -9%

Protect Land Ownership Title $10,734 $11,553 $99 -$2,020 $9,632 -17%

Locate Land Boundaries $32,376 $33,477 $400 $2,353 $36,230 7%

Administer Land Use Authorizations $23,525 $22,534 $212 $107 $22,853 0%

Process Land Use Proposals $12,558 $14,156 $147 -$453 $13,850 -3%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Landownership Management

Acres of land adjustments to conserve the 

integrity of undeveloped lands and habitat 

quality 14,719 27,002 42,243 14,691 49,560 64,200

Miles of landownership boundary line 

marked/maintained to standard 2,334 2,606 3,868 4,418 3,200 3,770

Number of land use authorizations 

administered to standard 12,708 14,797 15,753 16,683 16,000 16,000

Number of land use proposals and 

applications processed 4,611 5,111 4,991 4,542 4,980 4,290

FY 2011 Program Changes

The President’s Budget proposes $95,323,000 for Landownership Management, a reduction in program of 

$1,234 from FY 2010. The priority will be fulfilling critical boundary needs to support increased 

vegetative treatments on national forests and grasslands and contribute to the Nation’s energy needs. The 

Landownership Management program plays an important role in facilitating the Forest Service and the 

Nation’s response to climate change by adjusting land ownership through exchanges and targeting 

acquisition of lands to consolidate critical aquatic and terrestrial habitats, acquisition of watersheds that 

serve as natural reservoirs for downstream water supply, siting and operational conditions for energy 

facilities (generators, smart transmission lines, etc.), and the acquisition of vegetated lands to sequester 

carbon. The agency also continues its involvement in the diversification of energy sources via siting and 

operational conditions for non-carbon producing energy production from sources such as wind, solar, and 

hydroelectric that contributes to a reduction in greenhouse emissions.

Specific priorities within each activity include:

Adjust Land Ownership (-$1,221,000) – The request includes $12,758,000 for Adjust Land 

Ownership activities. Funding is requested to exchange, through acquisition or conveyance, 

approximately 64,200 acres of NFS land. Land adjustments help improve public access, conserve 

open space where its loss threatens the sustainability of the Nation’s forests and grasslands, and 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-33

protect healthy forested lands and watersheds. Land adjustments can facilitate enhancing ecosystem 

services, retention of snow and water in intact watersheds, and natural processes to maintain water 

quantity and quality. Maintaining these ecosystem services requires an integrated, landscape-level 

approach across land ownerships that can be managed through land adjustments. Land consolidations 

also reduce future management costs, respond to urban and community needs, reduce ownership 

fragmentation, and promote conservation.

In FY 2009, the agency accomplished 58 percent of its land adjustment target. This was primarily 

due to a delay in completing the appraisal for the State of Montana, Department of Natural Resources 

and Conservation (DNRC), Phase 1 land exchange project on the Lolo National Forest, consisting of 

12,000 acres. The Forest is currently on track to complete the entire exchange in FY 2010 (both 

Phase I and II) consisting of 24,000 acres.

Protect Land Ownership Title (-$2,020,000) – The request includes $9,632,000 to Protect Land 

Ownership Title. Funding is requested to resolve approximately 250 critical land title claims, 

encroachments, trespass, and other unauthorized uses, specifically those that involve litigation, 

legislation, or are associated with tribal land claims. Resolution of these claims secures and protects 

the interest, rights, title, and land and resources of the United States and bona fide claimants. The 

agency will also identify and process critical changes in land classifications needed to protect natural 

resource areas. In addition, improvements in the processing of title claims through automated data 

support are anticipated to reduce the overall costs to resolve title cases.

Locate Land Boundaries (+$2,353,000) – The request includes $36,230,000 to Locate Land 

Boundaries. Funding is requested to mark and maintain 3,770 miles of NFS property line. 

Encroachments and trespass on NFS lands continue to grow due to increasing development in the 

rural landscape and the rapidly expanding wildland-urban interface. Marking and maintenance of 

property lines provide landownership protection, security, and title defense. Leaving property lines 

un-marked and un-maintained can result in expensive and protracted litigation and loss of public 

lands and public trust. To maximize cost efficiencies, the Forest Service will prioritize cooperative 

and joint land surveys with other agencies through challenge cost share and other agreements.

The agency surpassed its target to mark and maintain boundary lines in FY 2009, accomplishing 138 

percent of the target. This was due, in part, to increased boundary line maintenance activities in 

support of continued hurricane relief efforts in the Southern Region and increased support to timber 

and fire-rehabilitation projects, and leveraging of resources in cost share projects in the Pacific 

Northwest Region.

Administer Land Use Authorizations and Process Land Use Proposals ($107,000) – The request 

includes $22,641,000 for Administer Land Use Authorizations and $22,853,000 for Process Land Use 

Proposals. Funding is requested to administer an estimated 16,000 special use authorizations (34 

percent of existing authorizations) to standard, with primary focus on those authorizations that 

address critical health and safety issues. The Forest Service will process approximately 4,290 new 

applications, focusing on those associated with statutory rights and energy related uses. Priority will 

continue to be placed on energy and communication projects.

Special use authorizations provide the authority for use of Federal lands for a wide variety of 

purposes. These include rights-of-way for roads, pipelines, communication sites, and electric 

transmission and distribution facilities. Processing and authorizing these uses facilitate the 

development and transmission of affordable, reliable energy, support national security and economic 

development; and promote the public health and safety of populations within, or in proximity to, 

national forests and grasslands throughout the country.
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-34

The agency surpassed its special land uses targets in FY 2009, accomplishing 104 percent of target 

authorizations administered to standard and 106 percent of target proposals and applications 

processed. Ongoing improvements to the special uses database continue to improve accuracy in 

accounting and consistency between targets and accomplishments.

Program Description

Program Overview

The Landownership Management program secures and protects approximately 193 million acres of public 

lands and interests within the National Forest Systems (NFS). Currently there are over 276,000 miles of 

Forest Service property line, of which over 31,500 miles (12 percent) have been marked and maintained 

to Forest Service standards. The program administers over 48,000 land use authorizations annually for a 

wide variety of purposes, including rights-of-way for roads, pipelines, communication and navigation 

sites, and electric transmission and distribution facilities. Administrative benefits are achieved within this 

program by minimizing land survey needs and fire management costs, reducing national forest property 

lines, acquiring rights-of-way, and authorizing special land uses.

The program is delivered through the following activities:

Adjust Land Ownership – Provides notification, analysis, valuation, and realty case processing 

services to public and private landowners and managers to improve land ownership patterns for more 

effective and efficient resource protection and use. Land ownership adjustment is carried out 

principally through exchanges, conveyances, and rights-of-way acquisitions.

Protect Land Ownership Title – Provides title defense and resolution affecting landownership 

activities related to land title claims, tribal claims, trespass, encroachments, other unauthorized uses, 

land sales, and grants and selections, including work associated with land title claim identification, 

inventory, and investigation. Also includes managing the land status record system which provides 

legally defensible boundaries and accurate, complete landownership records of NFS lands.

Locate Land Boundaries – Provides professional land surveying services, including property 

boundary surveys, locating and marking NFS property lines and administrative boundary lines, 

boundary and property corner maintenance and perpetuation, legal land description preparation and 

review, land title research, expert witness testimony, and geospatial and geodetic services, in order to 

protect the title, land ownership, and use of the public estate. The chart on the next page highlights 

the status of property lines by region. 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-35

Administer Land Uses Authorizations – Provides inspection, oversight, and monitoring of existing 

non-recreation authorizations to ensure compliance with the terms and conditions of the authorization 

while ensuring the health and safety of the public; protection of the environment; compliance with 

Federal, State, and local laws and regulations; and protection of the interests of the United States. 

Process Land Use Proposals – Provides responses, analyses, and decisions to requests to occupy and 

use NFS lands for non-recreational purposes. Many of these land uses include communications sites, 

hydropower facilities, oil and gas pipelines, electric transmission lines, and other energy related uses 

to facilitate the delivery of reliable energy resources and communication links. 

Allocation and Integration 

The Forest Service allocates funds using a process that combines support for essential operations and 

national priorities with a competitive process comparing regional performance and needs. These regional 

performance elements and needs include marking and maintaining boundary lines, acquiring or conveying 

NFS land; processing and administering special use permits; and protecting ownership rights. 

Integration with other resource programs occurs where land and resource management activities require 

marking and maintenance of NFS property lines or protection of forest resources. In such cases, 

boundary management resources are allocated directly to those areas of increasing demand, such as for 

hazardous fuels reduction activities, timber sales, and other land and resource management activities, 

particularly in the protection of specially designated management areas such as Wilderness. If critical 

land and resource management needs are not met, the consequences can result in trespasses, 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-36

encroachments, title claims, expensive and protracted litigation, and loss of public lands, as well as 

damage or destruction of special areas, plants, and fish and wildlife.

Partnerships 

The agency cooperates with many other Federal agencies such as the Bureau of Land Management, the 

National Park Service, and the Department of Defense; State agencies; interagency working groups; local 

and tribal governments; non-Federal exchange parties; and private landowners. The program identifies 

and secures cost-share and partnership opportunities in order to eliminate or reduce redundant efforts, 

such as leveraging funds to secure high priority resource lands for public access and resource protection.
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-37

Budget Line Item Law Enforcement Operations

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Law Enforcement Operations

Annual Appropriations $135,500 $145,047 $1,101 $0 $146,148 0%

Law Enforcement Operations Total $135,500 $145,047 $1,101 $0 $146,148 0%

Annual Appropriation FTEs 848 806 811

Total Full-Time Equivalents (FTEs) 848 806 811

Law Enforcement Operations

Enforce Laws & Regulations $89,183 $95,756 $727 $0 $96,483 0%

Investigate Crime $46,317 $49,291 $374 $0 $49,665 0%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Law Enforcement O perations

Percent of cases referred for adjudication N/A 4.3% 8.0% 8.3% 8.2% 8.3%

Number of documented law enforcement 

incidents per 10,000 forest visits N/A 6.3 7.2 7.6 7.5 7.6

FY 2011 Program Changes

The FY 2011 budget request for Law Enforcement and Investigations (LEI) is $146,148,000 million, a 

program reduction of $1,101,000. Agency Law Enforcement will continue to prioritize response to 

emergency and life-threatening situations. In 2011, LEI will continue crime prevention with the 

National Sheriff’s Association through the use of cooperative law enforcement agreements. In support of 

the National Fire Plan, LEI will continue to prioritize arson investigations and assign all necessary 

resources to this very high profile crime. LEI will continue to combat the activities of drug trafficking 

organizations along the Southwest and Northern borders. LEI activities will be particularly focused in 

California to address the cultivation of marijuana on National Forest System lands. LEI will continue to 

work with the Chief’s Office, Regional Foresters, line officers, and other internal partners to better 

integrate law enforcement and national resource management.

Enforce Law and Regulations ($727,000) – The request will fund uniform patrol presence to protect 

natural resources, Forest Service employees, and the public, and respond to safety incidents and 

violations of law and regulations. A primary focus of LEI will be addressing the large-scale 

marijuana cultivations that continue on NFS lands each year. Growers frequently damage soils, cut 

timber, and clear vegetation to create room for their crops, damaging resources and causing erosion 

problems. In FY 2009, the agency eradicated over 3.2 million marijuana plants from NFS lands. 

Investigate Crime ($49,665) – The request will fund criminal and civil investigations on arson, drug 

possession, theft, and assaults, in FY 2011. 

In FY 2009, 8.3 percent of cases were referred for adjudication, close to the target of 8 percent. The 

percent of documented law enforcement incidents per 10,000 forest visits was 7.6 percent compared to a 

target of 7.3 percent.
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-38

Program Description

Program Overview

The Forest Service Law Enforcement and Investigations (LEI) program provides a safe environment for 

the public and agency employees and protects the Nation’s natural resources on approximately 193 

million acres of NFS lands in 44 states. Increasing population growth in the wildland–urban interface, 

increasing popularity of NFS lands for motorized recreational use, and illegal occupancy of NFS lands 

cause significant impacts to NFS lands and resources and increase risks to public and employee health 

and safety.

This program performs the following two activities:

 

Enforce Laws & Regulations – Includes uniformed 

patrol presence and response to public and employee 

safety incidents and violations of law and 

regulations. Common incidents on national forests 

include theft, assault, alcohol and drug use, 

unauthorized motor vehicle use, illegal occupancy, 

trespassing, and resource protection patrols. 

Cultivation activities produce large amounts of trash 

and hazardous materials which are typically left on 

NFS lands. Growers frequently damage soils, cut 

timber and clear vegetation to create room for their 

crops creating resources damage and erosion problems and have assaulted and threatened Forest 

Service employees with violence. To protect Forest Service law enforcement officers carry firearms, 

defensive equipment, make arrests, execute search warrants, complete reports and testify in court. 

They establish a regular and recurring presence on a vast amount of public lands, roads, and 

recreation sites. The regulations Law Enforcement Officers enforce include 36 Code of Federal 

Regulations Parts 242 & 261. Part 242 of 36 CFR refers specifically to subsistence hunting and 

fishing regulations and is only applicable to federal land in Alaska. Part 261 of 36 CFR refers to 

regulations that apply to all National Forest lands nationwide. The primary focus of their jobs is the 

protection of natural resources, protection of Forest Service employees and the protection of visitors.

Investigate Crime – Covers criminal and civil investigations of both internal and external cases such 

as felony arson, drug possession, smuggling and manufacturing, thefts, and assaults. 

Drug Trafficking Organizations (DTOs) have been identified as the key producer of marijuana on 

NFS lands. DTO activities have been confirmed on 61 National Forests in Region 1, 2, 3, 4, 5, 6, 8 

and 9. Of the marijuana grown on Federal public land, 83% is on NFS lands. Illegal ground 

importation and trafficking on or near national forest lands of immigrants, drugs, weapons and other 

contraband, and illegal exportation of weapons and illicit cash profits create ongoing and imminent 

threats to the personal safety of employees and the visiting public. Special Agents plan and conduct 

investigations concerning possible violations of criminal and administrative provisions of the Forest 

Service and other statues under the United States Code. These normally plain clothes officers carry 

concealed firearms and other defensive equipment, make arrests, carry out complex criminal 

investigations, present cases for prosecution to U.S. Attorneys, and prepare investigative reports. 

Drug Eradication on the Mendocino NF

The Mendocino National Forest successfully 

eradicated 537,999 plants of marijuana and 

made 47 associated arrests during FY 2009. 

The Forest Service Law Enforcement 

organization successfully partnered with 

Mendocino, Colusa, Glen, Lake and Tehama

counties and other Federal law enforcement 

agencies to combat drug cartel activities on the 

Forest.
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-39

Allocation and Integration

Funding allocations support core operations and address priority needs, based on competitive regional 

criteria including number of visitors and acreage of NFS lands. In addition to public safety, priority is 

placed on responding to activity by drug trafficking organizations.

Partnerships

LEI staff cooperate with Federal, State, and local law enforcement agencies and other Forest Service 

programs by building strong relationships with sheriff’s offices, State police agencies, and Federal 

agencies such as the Drug Enforcement Agency; Federal Bureau of Investigation; Bureau of Alcohol, 

Tobacco, and Firearms; the Office of the United States Attorney, the Federal Court System; and other 

Federal land management agencies.
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-40

Budget Line Item Valles Caldera National Preserve

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Valles Caldera National Preserve

Annual Appropriations $4,000 $3,500 $0 $0 $3,500 0%

Valles Caldera National Preserve Total $4,000 $3,500 $0 $0 $3,500 0%

Annual Appropriation FTEs 1 1 1

Total Full-Time Equivalents (FTEs) 1 1 1

FY 2011 Program Changes

The request includes $3,500,000 for management of the Valles Caldera National Preserve, which reflects 

the same program level as FY 2010. This level of funding will allow the Valles Caldera Trust (Trust) to 

maintain Preserve management, operations, and continue progress toward meeting the goal of becoming 

financially self-sustaining by the end of FY 2015. Continued investment in the Preserve allows the 

Agency and the Trust to protect and preserve for future generations the scientific, scenic, historical, and 

natural values of this unique land area. Continued investment also allows the Trust to fully apply the idea 

of managing public land in a transparent and financially self-sustaining manner.

In FY 2009, the Trust offered new recreation programs and experienced a 23 percent increase in 

participation. This included hunting and fishing programs, as well as general public programs and special 

events. The Trust also ran its largest cattle operation since being acquired by the Federal government. As 

part of the Trust’s efforts to become financially self-sufficient and ensure transparency of operations, they 

contracted the development of a business plan that explored alternatives that could generate 

approximately $5 million in revenue annually and obtained the services of a financial auditing firm. The 

business plan and audit report were delivered to the Board of Trustees (Board) and are currently being 

reviewed.

Program Description

Program Overview

The Valles Caldera Preservation Act of July 25, 2000 (Public Law 106-248) provided for the acquisition 

of the Baca Ranch, located in the Jemez Mountains of New Mexico. The Act designated the Baca Ranch 

as the Valles Caldera National Preserve and provides for the management of the 88,900-acre tract as a 

unit of the National Forest System. The Preserve was established to protect various natural resources 

within its boundaries, and for providing multiple-use and sustained-yield of renewable resources. In 

addition, the Act requires the tract to continue to be managed as an operating ranch.

The Act requires management of the Preserve by the Trust, a government corporation subject to the 

Government Corporation Control Act. A nine-member Board is responsible for the protection and 

development of the Valles Caldera National Preserve. Seven of its members are appointed by the 

President of the United States. In addition, the current Superintendent of nearby Bandelier National 

Monument and the Forest Supervisor of the Santa Fe National Forest also serve on the Board. All Board 

decisions are made at public meetings. In August of 2002, the management authority for the Preserve 

was transferred to the Trust. 
FY 2010 Budget Justification USDA Forest Service

National Forest System 7-41

Funding for the Trust contributes to the management of the Valles Caldera National Preserve’s resources 

to protect grasslands, watersheds, and forest vegetation through the practice of sound range, watershed, 

and forest management. The Valles Caldera program also supports recreation opportunities as well as 

protecting and interpreting cultural and historic resources.

The Valles Caldera National Preserve program is delivered through the following activities:

Inventory, Monitoring, and Research – This activity includes the inventory, monitoring, and research 

of natural and cultural resources, such as vegetation, animals, soils, geologic formations, water 

resources, archaeological resources, and historic resources. These activities provide information for 

adaptive management of Preserve resources and for preparation of environmental documents.

Forest Management – This activity includes fire management such as thinning timber stand density 

and the disposal of slash to reduce the risk from wildfires and create defensible space around 

structures; management of prescribed fires and wildland fires managed for resource benefit, (i.e., 

naturally ignited fires) to meet resource objectives as outlined in fire management plans; noxious 

weed control and eradication using hand, mechanical, and chemical treatments; and management of 

domestic livestock grazing.

Recreation and Special Use Management – This activity provides for the management of recreation 

and education programs, special use authorizations, and management of volunteers. This includes 

providing interpretive activities; reservation services for activities and special events; establishment 

and management of day-use programs, such as, fishing, elk hunting, guided and unguided hiking, 

horseback riding, and winter sports; authorizing special uses for commercial filming and 

photography; special events such as mountain bike rides, marathons, celestial and solar viewing, and 

group tours; and uses by Native Americans for religious and cultural purposes. 

Infrastructure Management – This activity includes the inventory, evaluation, planning, 

programming, and actions related to maintenance and improvement of buildings, water and 

wastewater systems, communication facilities, roads, trails, signing, and ranch infrastructure, such as 

corrals, fences, and earthen tanks. Evaluation includes determining the condition and effectiveness of 

the facility. Planning includes forecasting the development, disposal, and major alterations and 

renovations necessary to preserve or restore the functionality of the facility. 

Partnerships

The Preserve benefits from monetary as well as non-monetary contributions. Non-monetary contributions 

include time and expertise contributed by our many volunteers. Extramural funding refers to money 

invested in projects (mostly research, inventory, and monitoring) conducted on the Preserve by outside 

agencies and organizations. The science program generated 8,158 hours (71 percent of the total) and over 

$3.5 million dollars in extramural investments in FY 2009. Work conducted on the Preserve by outside 

agencies and organizations, as well as volunteers, provides direct support to our programs as well as 

increasing collaboration, improving the work quality, and providing transparency in the adaptive 

management process.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-1

Appropriation Capital Improvement and Maintenance

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other 

Cost 

Changes

Program 

Changes

FY 2011 

President'

s Budget

Percent of 

Program 

Change

Capital Improvement & Maintenance

Annual Appropriations $495,393 $556,053 $3,531 -$121,191 $438,393 -22%

Supplemental & Emergency Funding $0 $0 $0 $0 $0

Supplemental & Emergency Funding - ARRA $650,000 $0 $0 $0 $0

Capital Improvement & Maintenance Total $1,145,393 $556,053 $3,531 -$121,191 $438,393 -22%

Annual Appropriation FTEs 2,664 2,813 2,248

Supplemental & Emergency Funding FTEs 31 0 0

Supplemental & Emergency Funding - ARRA 25 113 0

Total Full-Time Equivalents (FTEs) 2,720 2,926 2,248

Capital Improvement & Maintenance

Facilities $126,453 $135,010 $698 -$4,270 $131,438 -3%

Roads $228,825 $236,521 $1,465 -$73,621 $164,365 -31%

Trails $81,015 $85,381 $980 -$3,300 $83,061 -4%

Deferred Maintenance & Infrastructure Improvement $9,100 $9,141 $17 $0 $9,158 0%

Legacy Roads & Trails $50,000 $90,000 $371 -$40,000 $50,371 -44%

The FY 2011 President’s Budget provides $438,393,000 for the Forest Service’s Capital Improvement 

and Maintenance programs, a program reduction of $121,191,000 from FY 2010. Funds will be used to 

provide infrastructure that supports public, administrative, and recreation uses. The Budget also sets 

priorities for addressing deferred maintenance. 
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-2

Budget Line Item Facilities

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & Other 

Cost Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Facilities

Annual Appropriations $126,453 $135,010 $698 -$4,270 $131,438 -3%

Facilities Total $126,453 $135,010 $698 -$4,270 $131,438 -3%

Annual Appropriation FTEs 461 485 470

Total Full-Time Equivalents (FTEs) 461 485 470

Facilities

Maintain Facilities $72,597 $86,134 $413 -$6,588 $79,959 -8%

Improve Facilities $53,856 $48,876 $285 $2,318 $51,479 5%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Facilities

Facilities condition index 89% 89% 62% 87% 86% 86%

Percent of facilities with "Good" or "Fair" 

condition rating 64% 66% 63% 66% 68% 65%

Number of outdoor recreation facilities 

maintained to standard 9,770 10,231 10,129 10,553 11,680 11,490

FA&O facilities maintained to standard N/A 11,881 11,024 11,457 12,663 11,500

 

FY 2011 Program Changes

The FY 2011 President’s budget proposes $131,438,000 for Facilities, a program reduction of $4,270,000 

from FY 2010. The program priority is eliminating health and safety risks at agency owned buildings and 

recreation sites and reducing critical deferred maintenance on aging infrastructure, thereby improving the 

agency’s ability to successfully perform its mission. Priority will be placed on repairing and improving 

those facilities—including buildings, water and wastewater systems, dams, and recreation sites—that 

receive public use and are critical to supporting agency operations, including those facilities that were 

built or restored from funding made available through the American Recovery and Reinvestment Act of 

2009 (ARRA).

Specific priorities within each activity include:

Maintain Facilities (-$6,588,000) – This request provides $79,959,000 for facility maintenance. 

Funds will provide for the maintenance of fire, administrative and other facilities (FA&O) and 

recreation facilities and sites. Priorities include conducting maintenance and repairs necessary to 

provide safe and healthful environments in which to work and to recreate. Facilities that house 

employees for long periods of time, store mission-critical equipment, and provide unique recreation 

experiences will continue to be prioritized for maintenance.

In FY 2009, the Forest Service maintained 10,533 recreation sites to standard, or 60 percent of the 

total recreation sites, accomplishing 105 percent of its target. It is expected that more sites will be 

improved in FY 2010 due to the expenditure of the remaining Recreation Enhancement funds that are 

directed towards reducing deferred maintenance at high priority fee sites. The agency also 

maintained to standard 11,457 administrative facilities or approximately 101 percent of the target. 
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-3

Improve Facilities (+$2,318,000) – This request provides $51,479,000 to improve facilities. 

Priorities include replacing obsolete facilities and recreation sites that are critical to the agency 

mission, receive the highest use by the public and agency personnel, and are in the worst physical 

condition. New and replacement facilities are required to meet Silver Leadership in Energy and 

Environmental Design (LEED) specifications ensuring facilities are constructed to be energy efficient 

and optimize the use of renewable resources.

In FY 2009, approximately 74 percent of projects identified on the major project list were 

accomplished on time and within budget. The remaining projects will be completed in FY 2010.

Program Description

Program Overview

The Facilities program supports agency mission 

activities by administering facilities and sites used for 

recreation, research, and FA&O purposes. FA&O 

facilities include fire facilities, such as airtanker bases, 

lookouts, airports, heliports, and fire management 

centers; administrative facilities, such as 

administrative offices (ranger district offices, forest 

supervisor offices, regional offices, research stations 

and laboratories), and service and storage buildings; 

and other facilities, such as telecommunication 

facilities, towers, dams, and recreation visitor centers. 

This program includes carrying out maintenance, 

capital improvement, and management on over 17,600 

recreation sites and approximately 23,400 research, recreation, and other administrative buildings. 

The Facilities program consists of two activities. The terms “Capital Improvement” and “Maintenance” 

are used as defined by the Federal Accounting Standards Advisory Board (FASAB) Accounting 

Standards No. 6 (GPO # 041-001-00462-9).

Maintain Facilities – Maintenance is defined as the act of keeping fixed assets in acceptable 

condition. It includes repairs, preventive maintenance, replacement of parts and structural 

components. Maintenance projects for recreation developed sites, such as campgrounds and day-use 

sites, and FA&O facilities projects greater than $250,000 are funded within this activity. 

Maintenance excludes operation costs. The maintenance of facilities is essential to reduce energy and 

water consumption across the agency, and to create a sustainable network of facilities that meet 

Forest Service needs while reducing their environmental and climate impact.

Improve Facilities – Capital improvement projects for FA&O and recreation sites are included in this 

activity. Capital improvements include construction of new facilities, alteration of existing facilities 

to change function, and expansion of facilities to change capacity to meet needs that are different 

from the original intent. Improvements are often required to expand public service capability or 

recreational opportunities. In many cases, capital improvements eliminate deferred maintenance. 

Recreation Facility Savings

As of the end of FY 2009, 115 national 

forests have completed a Recreation Facility 

Analysis. The value resulting from these 

analyses is demonstrated as follows:

 ($ in millions)

Reduced Deferred Maintenance $ 80.3

O&M Cost Savings $ 29.5

Increase Revenue $ 12.1

 Total Benefits: $121.9
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-4

Allocation and Integration

Allocations to the field are based upon the agency’s FA&O master plans and the Recreation Facility 

Analysis (RFA) 5-year programs of work and address the Agency’s long-term strategic asset management 

objectives. These objectives include reducing long-term operation and maintenance costs, reducing 

deferred maintenance, disposing of unnecessary assets, and identifying and mitigating significant 

potential threats to employee and public safety.

Facilities maintenance and improvement activities are also funded by the Deferred Maintenance and 

Infrastructure Improvement budget line item. FA&O facilities are also funded through the Facilities 

Maintenance Multi-program Assessment funds (see Special Exhibit - Facilities Maintenance Assessment); 

and Permanent Appropriation – Federal Land and Facility Enhancement Fund and the Operation and 

Maintenance of Quarters Fund. In addition to appropriated funds, annual maintenance and repairs to 

recreation facilities are also funded through other special authorities, including the Federal Lands 

Recreation Enhancement Fund and the Timber Sales Pipeline Restoration Fund. Through the use of these 

funds the Forest Service is able to operate and maintain many of its recreation facilities that might 

otherwise have been closed due to increasing costs. 

Partnerships

The agency accomplishes valuable facility work by leveraging funds for completing these activities 

through partnerships. Volunteers, concessionaires, and other partners are engaged to enhance recreation 

experiences and help maintain nearly 70 percent of agency-owned recreation sites. The agency also colocates with other Federal and non-governmental agencies to share facilities and thereby lower operation 

costs.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-5 FY 2011 FACILITIES MAJOR PROJECT LIST ($ in thousands) Region 1 Facilities Roads Regionwide Planning & Design* $ 46 $ 135 $ 116 $ 91 $ 162 $ 226 $ 388 $ 388 $ 2,339 $ 1,161 $ 765 Regionwide Minor Capital Improvement Projects**

N $ 712 $ $ 712 $ 712 $ 244 $ 103

R101 ID 1 Nez Perce Red River H2O & Waste 

System Replacement

N $ 886 $ 886 $ $ 886 $ 886

R102 ID 1 Idaho Panhandle Couer d'Alene Nursery Roof 

Replacement

N $ 498 $ 498 $ $ 498 $ 498

R103 MT 1 Regional Office Aerial Fire Depot Siding Y $ 274 $ 274 $ $ 274 $ 274

R104 ID 1 Idaho Panhandle Fernan HVAC Renovation N $ 818 $ 818 $ $ 818 $ 818R105 MT 1 Lewis and Clark Cave Mountain/West Fork 

Campground 

N $ 266 $ $ 266 $ 266 $ 241 $ 350

 TOTAL $ 46 $ 1,113 $ 2,592 $ 91 $ 2,638 $ 1,204 $ 3,842 $ 873 $ 5,268 $ 1,161 $ 765

Region 2

Facilities Roads

Regionwide Planning & Design* $ 163 $ 120 $ 91 $ 100 $ 254 $ 220 $ 474 $ 45 $ 3,463 $ 5,973 $ 885Regionwide Minor Capital Improvement 

Projects**

$ $ $ 

R201 WY 1 Med Bow-Routt Centennial Visitor Information 

Center

N $ 360 $ $ 360 $ 360 $ 66

R202 CO 3 Grand Mesa, 

Unc, Gunnison

Columbine Recreation Area N $ $ 325 $ $ 325 $ 325 $ 300 $ 217

R203 NE 1 Nebraska Richland Dam Repair N $ 144 $ 389 $ 144 $ 389 $ 533 $ 144R204 CO 5 Pike/San Isabel O'Haver Lake Campground 

Rehabilitation

N $ 569 $ 569 $ $ 569 $ 177 $ 344

R205 CO 2 ArapahoRoosevelt Pawnee Campground & Day Use Area - Phase 2

N $ 765 $ $ 765 $ 765 $ 581 $ 765 $ 1,181 $ 1,086

R206 CO 2 ArapahoRoosevelt Berthoud Pass Trailhead Completion

N $ 366 $ $ 366 $ 366 $ 

R207 WY 1 Bighorn Paintrock Lakes Campground 

& Trailhead Rehabilitation

N $ 616 $ $ 616 $ 616 $ 87 $ 367

R208 CO 3 Rio Grande Big Meadows Campground 

Rehabilitation, Phase 2

N $ 250 $ 250 $ 250 $ 250 $ 500 $ 275 $ 206

 TOTAL $ 982 $ 2,802 $ 235 $ 489 $ 1,217 $ 3,291 $ 4,508 $ 1,465 $ 5,572 $ 7,154 $ 1,971

 ID

FY 2011 Facilities Funding

Fire

Fac?

(Y/N) Project Name Forest/Lab

Cong

District State

Project Name

Fire

Fac?

(Y/N) ID State

Cong

District Forest/Lab

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

FAC.

Mtce.

TOTAL

FAC.

Imp.

TOTAL

FAC. 

REC

Mtce.

RECImp.

FY 2011 Facilities Funding

TOTAL

RDS.

TOTAL

FAC. 

TOTAL

RDS.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance8-6

FY 2011 FACILITIES MAJOR PROJECT LIST

($ in thousands)

Region 3

Facilities Roads

Regionwide Planning & Design* $ 294 $ 80 $ $ 368 $ 294 $ 448 $ 742 $ $ 316 $ 1,286 $ 350Regionwide Minor Capital Improvement 

Projects**

$ $ $ $ $ $ $ 

R301 NM 2 Cibola Magdalena Administrative 

Site, Phase 2

N $ 3,324 $ $ 3,324 $ 3,324 $ 450 $ 535 $ 3,133 $ 100

R302 AZ 8 Coronado Rose Canyon Campground, 

Phase 2

N $ 848 $ 848 $ $ 848 $ 400 $ 1,200 $ 483

 TOTAL $ 1,142 $ 80 $ 0 $ 3,692 $ 1,142 $ 3,772 $ 4,914 $ 850 $ 2,051 $ 4,902 $ 450

Region 4

Facilities Roads

Regionwide Planning & Design* $ $ $ $ 250 $ $ 250 $ 250 $ $ 360 $ 5,615 $ Regionwide Minor Capital Improvement 

Projects**

$ $ $ $ $ $ $ $ $ $ $ 

R401 ID 1 Payette McCall Helibase Project 1/ Y $ 2,060 $ $ 2,060 $ 2,060

R402 UT Ashley Lucerne Campground 

Reconstruction 1/

N $ 2,000 $ $ 2,000 $ $ 2,000 $ 1,950 $ 4,000

R403 UT 2 Dixie Cedar City Maintenance Shop N $ 1,425 $ $ 1,425 $ 1,425 $ $ 800 $ $ 

R405 ID 2 Caribou-Targhee Caribou-Targhee 

Administrative Facilities

N $ 2,270 $ $ 2,270 $ 2,270 $ $ $ 

 TOTAL $ 2,000 $ 0 $ 0 $ 6,005 $ 2,000 $ 6,005 $ 8,005 $ 1,950 $ 5,160 $ 5,615 $ 0

Region 5

Facilities Roads

Regionwide Planning & Design* $ $ $ $ 167 $ $ 167 $ 167 $ 7 $ 4,127 $ 4,695 $ 177Regionwide Minor Capital Improvement 

Projects**

$ $ $ 

R501 CA 22 Angeles Fox Airbase Improvements, 

Phase 1 1/

Y $ 2,000 $ $ 2,000 $ 2,000 $ 1,336

R501 CA 3 Mendocino Upper Lake District Office 

Renovation

N $ 1,704 $ $ 1,704 $ 1,704 $ 15 $ 887

R502 CA 3 Tahoe Big Bend Engine Garage Y $ 1,673 $ $ 1,673 $ 1,673 $ 700

R503 CA 2 Six Rivers Mad River Duplex Renovation N $ 395 $ 365 $ 395 $ 365 $ 760 $ 365

 TOTAL $ 0 $ 0 $ 395 $ 5,908 $ 395 $ 5,908 $ 6,303 $ 22 $ 7,415 $ 4,695 $ 177

FY 2011 Facilities FundingFY 2011 Facilities Funding

Project Name

Fire

Fac?

(Y/N)

REC

Mtce.

RECImp.

TOTAL

FAC. 

TOTAL

RDS.

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp. ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

REC

Mtce.

RECImp.

TOTAL

FAC. 

TOTAL

RDS.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp. ID State

Cong

District Forest/Lab

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

FY 2011 Facilities Funding

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

TOTAL

FAC. 

TOTAL

RDS.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance8-7

FY 2011 FACILITIES MAJOR PROJECT LIST

($ in thousands)

Region 6

Facilities Roads

Regionwide Planning & Design* $ $ 192 $ 260 $ 80 $ 260 $ 272 $ 532 $ $ 4,242 $ 4,163 $ Regionwide Minor Capital Improvement 

Projects**

$ $ $ $ 225 $ $ 225 $ 225 $ $ 160 $ $ 

R601 OR 2 WallowaWhitman La Grande (OR) Air Tanker Base Apron Repair 1/ Y $ 1,669 $ 1,669 $ $ 1,669 $ 1,087

R602 OR 3 Mount Hood Zigzag Ranger District Office 

Consolidation

N $ 1,400 $ $ 1,400 $ 1,400 $ 302

R603 OR 4 Rogue RiverSiskiyou Union Creek Water System N $ 580 $ 580 $ $ 580 $ 308

R604 OR 4 Willamette N Waldo-Islet Campground 

Water System

N $ 430 $ 430 $ $ 430 $ 600

 TOTAL $ 1,010 $ 192 $ 1,929 $ 1,705 $ 2,939 $ 1,897 $ 4,836 $ 0 $ 6,699 $ 4,163 $ 0

Region 8

Facilities Roads

Regionwide Planning & Design* $ $ $ $ 545 $ $ 545 $ 545 $ $ 1,000 $ 12,000 $ Regionwide Minor Capital Improvement 

Projects**

$ $ $ 

R801 KY 5th Daniel Boone Twin Knobs Accessibility N $ 1,360 $ 1,360 $ $ 1,360 $ 850 $ $ 

R802 NC 11th North Carolina Appalachian Ranger District 

Office

N $ 3,065 $ $ 3,065 $ 3,065 $ 61

R803 FL 8th Florida Clearwater Lake Bathhouse N $ 365 $ 365 $ $ 365 $ 154

 TOTAL $ 1,725 $ 0 $ 0 $ 3,610 $ 1,725 $ 3,610 $ 5,335 $ 0 $ 2,065 $ 12,000 $ 0

Region 9

Facilities Roads

Regionwide Planning & Design* $ $ $ $ $ $ $ $ $ $ $ Regionwide Minor Capital Improvement 

Projects**

$ $ $ 

R901 MN 8 Superior Ely National Air Tanker Base 1/ Y $ 2,300 $ $ 2,300 $ 2,300 $ 100

R902 MN 8 Chippewa Walker Administrative Site Y $ 4,250 $ $ 4,250 $ 4,250 $ 1,200 $ 2,465 $ 200 $ 50R903 MI 2 Huron Manistee Baldwin/White Cloud Ranger 

District Administrative Site

Y $ 1,500 $ $ 1,500 $ 1,500 $ 250 $ 615 $ 4,650 $ 175

R904 WV Monongahela Lake Sherwood Campground N $ 903 $ 903 $ $ 903 $ $ 819

 TOTAL $ 903 $ 0 $ 0 $ 8,050 $ 903 $ 8,050 $ 8,953 $ 1,550 $ 3,899 $ 4,850 $ 225

Project Name

Fire

Fac?

(Y/N)

TOTAL

FAC. 

TOTAL

RDS. ID State

Cong

District Forest/Lab

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

TOTAL

FAC. 

TOTAL

RDS.

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

FY 2011 Facilities Funding

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

TOTAL

FAC. 

TOTAL

RDS.

FY 2011 Facilities Funding

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

FY 2011 Facilities Funding

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-8 FY 2011 FACILITIES MAJOR PROJECT LIST ($ in thousands) Region 10 Facilities Roads Regionwide Planning & Design* $ $ 210 $ 529 $ 513 $ 529 $ 723 $ 1,252 $ $ 65 $ 7,905 $ Regionwide Minor Capital Improvement Projects** $ 675 $ $ 675 $ 675 $ 85 $ 670 R1001 AK 1 Regionwide Mountain Communication Sites

N $ 1,182 $ 1,182 $ $ 1,182 $ 545

R1002 AK 1 Tongass Anan Administrative Facility N $ 696 $ $ 696 $ 696

R1003 AK 1 Tongass Cascade Creek Bunkhouse 

Renovation

N $ 516 $ 516 $ $ 516 $ 122

R1004 AK 1 Tongass White Sulphur Springs 

Reconstruction

N $ 463 $ 463 $ $ 463 $ 234

 TOTAL $ 463 $ 885 $ 2,227 $ 1,209 $ 2,690 $ 2,094 $ 4,784 $ 0 $ 1,051 $ 8,575 $ 0

Stations

Facilities Roads

Stationwide Planning & Design* $ $ $ 303 $ 260 $ 303 $ 260 $ 563 $ $ $ 4,939 $ Stationwide Minor Capital Improvement 

Projects**

$ 328 $ $ 328 $ 328 $ 214

S01 AK At Large Pacific SW Juneau Lab Collocation, 

Phase 2 1/

N $ $ 4,960 $ $ 4,960 $ 4,960 $ 1,330

S02 OR 2 Pacific NW LaGrande Warehouse 

Expansion

N $ 102 $ 327 $ 102 $ 327 $ 429 $ 102

S03 WI 7 Northern Rhinelander Lab Renovations N $ 200 $ 244 $ 200 $ 244 $ 444 $ 271

S04 MS 2 Southern Stoneville Lab Renovations N $ 784 $ 730 $ 784 $ 730 $ 1,514 $ 784S05 CO 4 Rocky Mountain Ft. Collins Prospect 

Renovations

N $ 1,091 $ 1,987 $ 1,091 $ 1,987 $ 3,078 $ 200 $ 1,600

S06 GA 12 Southern Athens Lab Renovations N $ 800 $ 100 $ 800 $ 100 $ 900 $ 816 $ 985S07 HI 2 Pacific SW Hawaii Experimental Forest 

Infrastructure, Phase 3

N $ 500 $ $ 500 $ 500 $ $ 500

 TOTAL $ 0 $ 0 $ 3,280 $ 9,436 $ 3,280 $ 9,436 $ 12,716 $ 200 $ 5,117 $ 6,424 $ 0

Northeastern Area

Facilities Roads

Areawide Planning & Design* 1/ $ $ $ $ 150 $ $ 150 $ 150 $ $ $ 825 $ 

 TOTAL $ 0 $ 0 $ 0 $ 150 $ 0 $ 150 $ 150 $ 0 $ 0 $ 825 $ 0

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011

RECImp.

TOTAL

Mtce.

TOTAL

Imp.

FA&O

Imp.

TOTAL

RDS.

RECImp.

TOTAL

FAC. 

TOTAL

RDS.

TOTAL

Imp.

FY 2011 Facilities Funding

REC

Mtce.

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

REC

Mtce.

FA&O

Mtce.

TOTAL

Mtce. ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

REC

Mtce.

RECImp.

FY 2011 Facilities Funding

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

TOTAL

FAC. 

FA&O

Imp.

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

TOTAL

RDS.

FY 2011 Facilities Funding

TOTAL

FAC. 

FA&O

Mtce.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance8-9

FY 2011 FACILITIES MAJOR PROJECT LIST

($ in thousands)

TOTALS FOR REGIONS, STATIONS, AREA, and TECH CENTERS

Facilities Roads

Regional Subtotal $ 8,271 $ 5,072 $ 7,378 $ 30,759 $ 15,649 $ 35,831 $ 51,480 $ 6,710 $ 39,180 $ 53,115 $ 3,588

Stations Subtotal $ $ $ 3,280 $ 9,436 $ 3,280 $ 9,436 $ 12,716 $ 200 $ 5,117 $ 6,424 $ Northeastern Area Subtotal $ $ $ $ 150 $ $ 150 $ 150 $ $ $ 825 $ 

TOTAL, MAJOR PROJECT LIST

$ 8,271 $ 5,072 $ 10,658 $ 40,345 $ 18,929 $ 45,417 $ 64,346 $ 6,910 $ 44,297 $ 60,364 $ 3,588

Recreation Maintenance Under $250,000

$ 51,720 $ $ $ $ 51,720 $ $ 51,720 $ $ $ $ 

Washington Office $ 2,896 $ 258 $ 541 $ 2,041 $ 3,437 $ 2,299 $ 5,736 $ $ $ 

Albuquerque Service Center Business Management

$ 4,987 $ 422 $ 886 $ 3,341 $ 5,873 $ 3,763 $ 9,636 $ $ $ $ 

TOTAL, OTHER PROGRAM SUPPORT

$ 59,603 $ 680 $ 1,427 $ 5,382 $ 61,030 $ 6,062 $ 67,092 $ $ $ $ 

TOTAL FACILITIES MAJOR PROJECT LIST

$ 67,874 $ 5,752 $ 12,085 $ 45,727 $ 79,959 $ 51,479 $ 131,438 $ 6,910 $ 44,297 $ 60,364 $ 3,588

1/ Using a national competition process, these projects were selected by the agency's Asset Management Review Board (AMRB) and approved by the Executive Leadership Council.Notes:

*Planning and Design (P&D) for capital investment projects costing more than $250,000. Project names are provided in the associated fact sheet. **Capital improvement projects costing less than $250,000.

 ID State

Cong

District Forest/Lab Project Name

Fire

Fac?

(Y/N)

FY 2011 Facilities Funding

REC

Mtce.

RECImp.

FA&O

Mtce.

FA&O

Imp.

TOTAL

Mtce.

TOTAL

Imp.

TOTAL

FAC. 

TOTAL

RDS.

DEF.

MTCE.

ELIM.

Costs

Beyond FY 2011
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-10

Budget Line Item Roads

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & Other 

Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Roads

Annual Appropriations $228,825 $236,521 $1,465 -$73,621 $164,365 -31%

Roads Total $228,825 $236,521 $1,465 -$73,621 $164,365 -31%

Annual Appropriation FTEs 1,409 1,447 987

Total Full-Time Equivalents (FTEs) 1,409 1,447 987

Roads

Maintain Passenger Car Roads $120,701 $141,997 $1,175 -$10,673 $132,499 -8%

Maintain High Clearance & Closed Roads $37,627 $20,037 $249 $6,878 $27,164 34%

Decommission Roads $4,172 $4,851 $41 -$190 $4,702 -4%

Improve Roads $66,325 $69,636 $0 -$69,636 $0 -100%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Roads

Miles of passenger car roads receiving maintenance 43,073 39,453 46,247 50,592 50,889 31,000

Miles of high clearance system roads receiving 

maintenance 28,598 20,725 29,638 34,411 30,440 24,000

Miles of roads decommissioned 682 402 1,290 1,778 1,519 950

Miles of road reconstruction and capital improvement 179 617 3,501 4,352 5,225 0

Percent of road and trail rights-of-way acquired that 

provide public access through easement acquisitions or 

land adjustments 94% 90% 78% 67% 85% 85%

Table Note: Table data includes ARRA accomplishments

FY 2011 Program Changes 

The FY 2011 President’s budget proposes $164,365,000 for Roads, a program decrease of $73,621,000

from FY 2010. The agency will focus on the work related to ensuring public safety, resource protection,

and critical access needs. 

Specific priorities within each activity include:

Maintain Passenger-Car Roads (-$10,673,000) – The request includes $132,499,000 for the 

maintenance of passenger car roads. Considering all funding sources, the request will fund an 

estimated 31,000 miles of passenger-car roads maintenance of approximately 65,800 miles of road 

operated for passenger-car use. Priority projects include the maintenance necessary to meet Highway 

Safety Act requirements, emergency access for first responders, and escape routes in the event of 

wildland fire or other emergency situations. Effective passenger car road maintenance ensures that 

roads open for public and administrative travel comply with safety requirements and environmental 

protection laws, and are available for critical access needs.

Maintain High Clearance and Closed Roads (+$6,878,000) – The request includes $27,164,000 for 

the maintenance of high clearance and closed roads. The funding will provide maintenance for 

approximately 24,000 miles of road considering all funding sources. Currently there are 

approximately 209,650 miles of road operated for high clearance vehicle use and 99,760 miles of 

closed or stored roads within the NFS. Priority will be placed on maintaining roads identified as an 

open route on a Motor Vehicle Use Map and to minimize or correct the environmental effects to 
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-11

resources, such as sediment loads in streams and lakes. Effective high clearance road maintenance 

ensures that roads open for public and administrative travels comply with environmental laws.

Decommission Roads (-$190,000) – The request includes $4,702,000 for decommissioning 950 road 

miles considering all funding sources. Priority will be placed on eliminating unneeded roads or 

portions of the existing transportation system that duplicate access or create extensive environmental 

degradation. Decommissioning unneeded roads and structures eliminates the environmental effects 

of such roads and is essential to operating a transportation system—within available funding—that is 

sustainable in a safe and environmentally acceptable manner. Priority will be placed on existing 

roads that have been identified for decommissioning as part of the Transportation Analysis Process.

Improve Roads (-$69,636,00) – No funding is requested for the capital improvement of roads. The 

reduction reflects a curtailment in the construction of new roads and upgrading existing roads. The 

reduction reflects an emphasis on the maintenance of existing transportation system. 

In FY 2009, the agency exceeded expected accomplishments in each of the four road maintenance 

and capital improvement performance measures. This was due in part to the additional funding 

received through the American Recovery and Reinvest Act (ARRA) appropriation and higher than 

anticipated partnership contributions. The Forest Service also removed, disposed or transferred 30 

bridges; repaired 17 deficient or obsolete bridges; constructed 86 new bridges to replace existing 

bridges or major culverts; and constructed 3 new bridges. In addition, 14 stream crossings were 

constructed or reconstructed for aquatic passage with Roads program funds, 163 using Legacy Roads 

and Trails funds, 24 using ARRA funds, 24 using aquatic organism passage funds from the Federal 

Highway Administration through SAFETEA-LU, and an additional 46 from trust funds, integrated 

and partnership contributions for a total of 271 structures.

The agency acquired 145 of the road and trail rights-of-way that provide public access through 

easement acquisitions or land adjustments (63% of the target). The agency did not meet its target, in 

part due to the complexity of real estate transactions and final agreements between parties consuming 

more time than anticipated.

The following table shows the miles of unified accomplishment for each activity by funding source:

FY 2009 Miles Accomplished by Funding Source

Funding Source

Passenger 

Car4

High 

Clearance4 Decommissioning Improvement

Roads 36,117 22,764 304 1,3912

Legacy Roads and Trails 666 1,196 929 1,025

ARRA 2,135 2,141 0 263

Other1 11,674 8,310 545 1,6733

Unified Total (miles) 50,592 34,411 1,778 4,352 1

Includes Permanent & Trusts Funds, Integrated, and Partnership contributions

2

Includes 11 miles of new road construction.

3

Includes 56 miles of new road construction, of which 53.8 miles from timber purchasers. 4

Passenger car and High Clearance road maintenance reflects miles receiving maintenance.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-12

Program Description 

Program Overview

The National Forest Road System (NFRS) provides motor-vehicle access for management, protection, 

and public use and enjoyment of NFS lands. Virtually all activities on NFS lands require travel over the 

system, which consists of approximately 6,400 bridges and 375,200 miles of roads. In FY 2008, NFS 

lands had about 176 million visits. 

The terms “Capital Improvement” and “Maintenance” are used as defined by the Federal Accounting 

Standards Advisory Board (FASAB) Accounting Standards No. 6 (GPO # 041-001-00462-9). System 

roads open for travel by passenger cars and other State highway legal vehicles (Maintenance Levels 3 – 5) 

are subject to the requirements of the Highway Safety Act. These roads provide access for emergency 

responders and are sometimes the only escape routes for forest users and local residents in the event of 

wildfire or other emergency situations. High clearance (Maintenance Level 2) and closed roads 

(Maintenance Level 1) are provided primarily for recreational access and administrative use. 

The program is delivered through the following activities:

Maintain Passenger Car Roads and Maintain High Clearance and Closed Roads – These activities 

include the maintenance of existing system roads, bridges, and other vehicle access areas such as 

parking lots. Maintenance activities include the actions necessary to preserve or restore a road to its 

original service level and condition to provide acceptable service and achieve its expected life. This 

includes maintenance of the travel ways, roadside vegetation; drainage facilities; structures, including 

bridges; and traffic control devices, including signs and gates. Maintenance includes the replacement 

of deficient bridges or culverts necessary to comply with safety requirements and environmental 

protection laws. Maintenance also includes road management and transportation planning. 

Transportation planning (travel management) helps identify opportunities to reduce the number of 

open roads and determine the appropriate service level for the roads remaining to obtain a sustainable 

transportation system. Engineering support costs are included in this activity only for road work that 

qualifies as maintenance. Engineering support for timber sale contracts under this activity includes 

the design, cost estimates, contract preparation, and contract administration to assure applicable safety 

and environmental standards are met. 

Improve Roads - These activities provide for capital improvements of system roads, including 

structures and other vehicle access areas such as parking lots. Capital improvements include adding 

new miles to the transportation system through new construction of roads and bridges, reclassifying 

unauthorized roads, and rights-of-way acquisition; changing the function of existing roads to 

accommodate different user types, such as changing a logging road to a recreation road; and 

increasing the capacity of an existing road, such as changing a single lane road or bridge to a two lane 

road or bridge. Engineering support costs are included in this activity only for road work that 

qualifies as a capital improvement. Engineering support for timber sale contracts includes the design, 

cost estimates, contract preparation, and contract administration to assure applicable safety and 

environmental standards are met. 

Decommission Roads – Road decommissioning activities eliminate unneeded and unauthorized roads 

and restores land occupied by roads to a more natural state. Decommissioning of roads is not an 

allowable use of appropriations under the authorizing statute (23 USC 205). However, since FY 

1991, language in annual appropriations bills has authorized use of a portion of Roads funds for 

decommissioning. 
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-13

Allocation and Integration

For several years, Congress has provided annual direction on the proportionate amounts of the Roads 

appropriation to be spent for capital improvement and maintenance. Funding is allocated to the field 

using a formula that respects this direction. The formula considers land area, visitor use, timber volume 

offered on timber sale and stewardship contracts, and acres treated for hazardous fuels. Adjustments may 

be made between regions based on capability information submitted by the regions or to mitigate 

situations where proposed allocations would create undesirable transition effects. 

The NFRS is an integral part of the rural transportation network and is operated and maintained to 

provide safe access for all resource program activities including terrestrial and aquatic ecosystem 

management programs (Integrated Resources Restoration and Hazardous Fuels Reduction), and programs 

that support public enjoyment by providing access to recreation sites, trailheads, and special areas 

(Recreation, Heritage and Wilderness; and Trails). A focus of these funds will be on the implementation 

of completed travel analyses. Coordination across multiple program areas is integral to successfully 

managing the NFRS to ensure the transportation system is adequate to meet those needs. 

Partnerships

The National Forest Roads and Trails Act of 1964 (P.L. 88-657, 16 USC 535) authorizes cooperative 

construction and maintenance of road systems. Under this authority, the Forest Service enters into 

“Cooperative Road Construction and Use Agreements” (Cost Share Agreements) with the owners of large 

tracts of lands intermingled with NFS lands. The Forest Service also enters into “Forest Road 

Agreements” with public road authorities, such as States and counties, where NFS access, local 

residential access, and local commerce needs coincide. Tens of thousands of miles of NFS roads are

included in agreements.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-14

Budget Line Item Trails

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other 

Cost 

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Trails

Annual Appropriations $81,015 $85,381 $980 -$3,300 $83,061 -4%

Trails Total $81,015 $85,381 $980 -$3,300 $83,061 -4%

Annual Appropriation FTEs 678 700 685

Total Full-Time Equivalents (FTEs) 678 700 685

Trails

Maintain Trails $60,649 $63,846 $716 -$1,320 $63,242 -2%

Improve Trails $20,366 $21,535 $264 -$1,980 $19,819 -9%

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Trails

Miles of system trails maintained to standard 24,860 25,696 30,867 38,383 31,565 31,200

Miles of system trail improved to standard 1,410 1,594 1,410 1,473 925 900

Table Note: Data includes ARRA accomplishments

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $83,061,000 for Trails, a program reduction of $3,300,000 

from FY 2010. Priority will be placed on promoting public health and safety. This will include actions 

such as designating trails for motor-vehicle use consistent with the Travel Management Rule. Decreasing 

the backlog of deferred maintenance and improvements for trails continues to be a national priority. The 

program will continue to focus on management and protection of the national scenic and historic trails, 

including the newly established Arizona National Scenic Trail and the Pacific Northwest National Scenic 

Trail. The agency will establish and strengthen partnerships in trail stewardship, particularly those that 

provide for the delivery of youth programs. Specific priorities within each activity include:

Maintain Trails (-$1,320,000) – This request includes $63,242,000 to maintain trails. Funding will 

be used to maintain approximately 31,200 trail miles to standard, of which approximately 20 percent 

will be accomplished through the use of volunteers. In FY 2011, the agency will address 

approximately 21 percent of the total trail system miles through a unified program of work. 

Validation and improvement of basic trails inventory, and collection of trail assessment and condition 

survey data will also continue to be a priority to ensure that the agency has sound, accurate 

information on NFS trails. Trail maintenance reduces resource damage and improves safety 

conditions to provide a safe and a quality experience for trail users.

In FY 2009, the agency surpassed its target for the miles of system trails maintained to standard, 

accomplishing 123 percent of the target. The majority of this increase was due to funds provided 

through the American Recovery and Reinvestment Act (ARRA) that were directed towards trail 

maintenance work across the nation.

Improve Trails (-$1,980,000) – This request includes $19,819,000 to improve trails. Funding will be 

used to relocate or construct approximately 915 miles of trails. The agency will conduct new 

construction on several National Scenic and Historic Trails, including the Florida National Scenic 

Trail, the Continental Divide National Scenic Trail, and the Pacific Crest National Scenic Trail (see

the Special Exhibit, National Scenic and Historic Trails, for more details on accomplishments and 
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-15

plans). Trail improvement helps ensure a safe and quality experience for trail users and protects 

watersheds.

In FY 2009, the agency surpassed its target for the miles of system trail miles improved to standard, 

accomplishing 153 percent of the target. The majority of this increase was due to the success of the 

Rocky Mountain Region in increased accomplishments through the use of partnerships.

 

Program Description

Program Overview

The Trails program ensures public safety and backcountry access through the operation, maintenance, 

rehabilitation, and improvement of NFS trails. NFS lands contain over 148,000 miles of trails, of which 

approximately 38,000 miles are currently meeting standard. About 32,000 miles of trails are inside 

wilderness areas. The NFS trails system accommodates roughly 50 million visitor-days of cross-country 

skiing, hiking, horseback riding, mountain biking, snowmobiling, and off-highway vehicle use each year. 

The Trails program ensures public safety and backcountry access through the operation, maintenance, 

rehabilitation, and improvement of NFS trails, serving a wide constituency of visitors at a relatively low 

cost.

The Trails program also administers National Scenic and Historic Trails, including the Appalachian 

National Scenic Trail, Continental Divide National Scenic Trail, Florida National Scenic Trail, Pacific 

Crest National Scenic Trail, Nez Perce National Historic Trail, Arizona National Scenic Trails, Pacific 

Northwest National Scenic Trail, and portions of an additional 15 other national scenic and historic trails. 

This administration is accomplished in coordination with other Federal public land agencies (see Special 

Exhibits for further detail.)

The Trails program is delivered through the two following activities. The terms “Capital Improvement” 

and “Maintenance” are used as defined by the Federal Accounting Standards Advisory Board (FASAB) 

Accounting Standards No. 6 (GPO # 041-001-00462-9).

Maintain Trails (both annual and deferred maintenance) – This activity includes the maintenance and 

operation of system trails, bridges, and trailheads. Maintenance activities include the actions 

necessary to preserve or restore a trail to its original condition in order to provide acceptable service 

and achieve the expected trail lifespan. Work includes clearing encroaching vegetation and fallen 

trees; and the repair, preventive maintenance, and replacement of trail signs, treadways, water 

drainage, and bridges. Trail maintenance also provides trail accessibility and promotes ecosystem 

health by protecting soil, vegetation, and water quality. 

Improve Trails – Provides for the planning and design, new construction, alteration and expansion of 

trails, trail bridges, and trail components such as barriers, culverts, fencing, and viewing platforms. 

Unneeded and user created trails are eliminated under this program to benefit restoration of 

watersheds and wildlife. Work ensures trail systems are accessible, adequately designed, safe, and 

environmentally responsible. In many cases, capital improvements eliminate deferred maintenance. 

Allocation and Integration 

Funding is allocated based on the existing miles of NFS trails, regional capability, and management of 

National Scenic and Historic Trails. While maintaining a base-level ability to maintain trails in all the 

National Forests and Grasslands, a portion of the trails funding will be used to create jobs for youth in 

rural areas by leveraging resources. Priority will be given to the projects that leverage the most non-
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-16

Federal dollars and create the most jobs. Trail maintenance and improvement is also funded by Capital 

Improvement and Maintenance - Deferred Maintenance and Infrastructure Improvement, Legacy Roads 

and Trails, and Permanent Appropriation – Roads and Trails (10 percent) Fund.

Partnerships

The Trails program leverages thousands of hours of trail work from volunteers and youth organizations to 

operate, maintain, and construct thousands of miles of trail each year. Trail crews are one of the primary 

means for the Forest Service to employ young adults and partner with local communities and interest 

groups. In FY 2009, partners contributed approximately $4.2 million in funding for trail operations, and 

maintained and improved over 6,000 miles of trails.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-17

Budget Line Item Deferred Maintenance and Infrastructure Improvement 

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Deferred Maintenance & Infrastructure Improvement

Annual Appropriations $9,100 $9,141 $17 $0 $9,158 0%

Deferred Maintenance & Infrastructure Improvement Total $9,100 $9,141 $17 $0 $9,158 0%

Annual Appropriation FTEs 19 16 11

Total Full-Time Equivalents (FTEs) 19 16 11

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Deferred Maintenance & Infrastructure Improvement

Miles of high clearance system roads receiving 

maintenance N/A 0 44 16 50 50

Miles of passenger car roads receiving maintenance N/A 0 174 80 175 160

Miles of road reconstruction and capital improvement N/A 153 14 7 20 29

Miles of trails maintained to standard N/A 0 50 11 50 50

Miles of system trail improved to standard N/A 0 0 0 0 0

FA&O facilities maintained to standard N/A 0 0 0 0 0

Number of outdoor recreation facilities maintained to 

standard N/A 0 0 0 0 0

FY 2011 Program Changes

The President’s Budget proposes $9,158,000 for Deferred Maintenance and Infrastructure Improvement, 

the same program level as FY 2010. Other appropriations, such as Facilities, Roads and Trails will 

contribute to the agency’s efforts to reduce the deferred maintenance backlog. In FY 2011, the agency 

will evaluate the needs for funding under this program on a national scale and select priority projects for 

implementation. Priority projects will address the most critical health and safety infrastructure needs 

particularly in areas that are heavily used by the public and agency employees, such as replacement of 

deficient bridges and stream crossings, correcting health and safety deficiencies in buildings, 

campgrounds, and water and wastewater systems, and reconstruction and rehabilitation of trails and trail 

structures. When allocating FY 2011 Deferred Maintenance funding, Forest Service will give priority to 

projects that capitalize on technologies—such as rock crushers—that reduce deferred maintenance with 

cost effective methods. 

Past Performance

In FY 2009, the agency repaired or replaced 1 bridge, maintained 95 road miles, improved 24 road miles, 

and maintained 11 trail miles improving health and safety conditions for the public and employees. In 

addition, over $8.3 million dollars of deferred maintenance was eliminated.

Program Description 

Program Overview

The Deferred Maintenance and Infrastructure Improvement program provides the maintenance, repair, 

and improvement of the agency’s infrastructure. This portfolio includes approximately 41,000 buildings, 

5,000 water systems, 5,000 wastewater systems, 17,600 recreation sites, 148,000 miles of trails, 6,300 
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-18

trail bridges, 6,300 road bridges, 375,200 miles of roads, and additional infrastructure features. This 

portfolio of assets currently has a backlog of $5.3 billion in maintenance needs.

This program provides for maintenance of recreation developed sites, water-wastewater systems, roads, 

trails, road and trail bridges, those FA&O facility maintenance projects costing more than $250,000, and 

infrastructure capital improvements. 

Maintenance - includes repairs, preventive maintenance, replacement of parts and structural 

components. Maintenance that is not performed as needed or scheduled is referred to as deferred 

maintenance. Deferred maintenance leads to deterioration of performance, increased costs to repair, 

and a decrease in the value of the infrastructure. Deferred maintenance complements the Facilities, 

Roads, Trails, and Legacy Roads and Trails programs and directs funds specifically toward reducing 

the backlog of deferred maintenance to ensure the safety of the recreating public, agency employees, 

volunteers, and contractors. 

Infrastructure Improvement - includes the construction of new infrastructure, alteration of existing 

infrastructure to change its function, and the expansion of existing infrastructure to increase capacity. 

Improvements are often required to maintain public service capability or recreational opportunities. 

Capital improvement projects eliminate deferred maintenance and provide mission-critical 

infrastructure.

Allocation and Integration

Funding is allocated specifically to reduce critical deferred maintenance. Condition assessment surveys 

drive management decisions and national allocations regarding construction, use, maintenance or 

decommissioning, and disposal of assets. Projects that will most greatly reduce the agency’s total 

deferred maintenance will be given priority for funding.

In addition to Deferred Maintenance and Infrastructure Improvement, other programs and authorities are 

available to reduce deferred maintenance, including Capital Improvement and Maintenance – Facilities, 

Roads, Trails, and Legacy Roads and Trails programs; and Permanent Appropriations - Federal Lands 

Recreation Enhancement Fund, Federal Land and Facility Enhancement Fund, Roads and Trails (10 

Percent) Fund, and Operations and Maintenance of Quarters. Through the use of these funds, the Forest 

Service is able to direct additional resources that address the significant backlog of deferred maintenance 

on the agency’s infrastructure.

Partnerships

The program leverages funds through partnerships with non-profit organizations and volunteers. 

Additional leveraging is accomplished through concessionaire programs, user maintenance fees, and other 

partner-based work.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-19

Budget Line Item Legacy Roads and Trails

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other 

Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Legacy Roads & Trails

Annual Appropriations $50,000 $90,000 $371 -$40,000 $50,371 -44%

Legacy Roads & Trails Total $50,000 $90,000 $371 -$40,000 $50,371 -44%

Annual Appropriation FTEs 97 165 95

Total Full-Time Equivalents (FTEs) 97 165 95

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Legacy Roads & Trails

Miles of passenger car roads receiving maintenance N/A N/A 633 666 900 600

Miles of high clearance system roads receiving 

maintenance N/A N/A 900 1,196 1,440 1,000

Miles of roads decommissioned N/A N/A 531 929 660 850

Miles of road reconstruction and capital improvement N/A N/A 631 733 1,560 700

Miles of trails maintained to standard N/A N/A 849 162 850 275

Miles of system trail improved to standard N/A N/A 22 28 45 30

FY 2011 Program Changes 

The President’s Budget proposes $50,371,000 for Legacy Roads and Trails, which reflects a program 

decrease of $40,000,000 below FY 2010. This program will accomplish urgently needed road 

decommissioning for water quality protection, decommissioning of unneeded system and unauthorized 

roads, removal and/or replacement of stream crossings which act as barriers to aquatic organism passage, 

road and trail repair and maintenance in environmentally sensitive areas, and road repair and maintenance 

and associated activities on roads subject to recent storm damage.

In FY 2009, through the Legacy Roads and Trails program, the agency maintained 1,862 miles of road; 

decommissioned 929 miles of road and 5 bridges or major culverts; improved 733 miles of road; repaired 

or replaced 32 bridges or major culverts. In addition, the agency maintained 162 miles of trail to 

standard, improved 28 miles of trail and constructed or reconstructed 163 stream crossings for aquatic 

organism passage.

Program Description 

Program Overview

The Legacy Roads and Trails program, established by Congress in FY 2008, provides for urgently needed 

road decommissioning, where inaction can lead to water quality issues in streams and water bodies which 

support threatened and endangered species (TES) or community water systems; removal or replacement 

of stream crossing structures that are barriers to aquatic organism passage; road and trail repair and 

maintenance and associated activities in environmentally sensitive areas; and repair and maintenance on 

roads and trails subject to recent storm damage. These roads and trails have been identified as priority 

projects due to their immediate impact on water resources and ecosystem function.
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-20

The Legacy Roads and Trails program is delivered through the following activities:

Maintain Passenger Car Roads, Maintain 

High Clearance and Closed Roads, and 

Maintain Trails. – These activities include 

the maintenance of the traveled way; 

drainage facilities; and structures, 

including bridges in environmentally 

sensitive areas. Maintenance is intended

to enhance water quality, restore aquatic 

passage, and protect NFS resources from 

road-related damage. Maintenance may 

include substantial reconstruction work.

Decommission Roads – Road 

decommissioning activities include 

restoring lands occupied by roads to a 

more natural state. Roads to be 

decommissioned include both system roads and unauthorized roads that exist on NFS lands that are 

adversely affecting TES or community water systems. Decommissioning of roads is normally not an 

allowable use of appropriations under 23 USC 205. However, Congress has included language in 

annual appropriations bills authorizing use of Capital Improvement and Maintenance funds for road 

decommissioning. 

Improve Roads and Improve Trails - These activities include the replacement of bridges or major 

culverts that are barriers to aquatic organism passage, and road and trail surfacing for erosion 

protection (where surfacing was not provided under original construction). 

Allocation and Integration

The water quality-limited stream segments as defined by Section 303d of the Clean Water Act are used to 

establish an estimated acreage of impaired watershed which is used as part of the allocation criteria in 

conjunction with the relative amounts of critical resource deferred maintenance on roads and trails. 

Adjustments may be made between regions based on capability information submitted by the regions and 

any unexpected storms resulting in critical damage unlikely to be reimbursed by the Federal Highway 

Administration’s Emergency Relief for Federally Owned Roads (ERFO) program.

Coordination across multiple staff program areas (recreation, fisheries, and hydrology) is integral to 

successfully managing the road and trail system to ensure the work accomplished meets the 

environmental needs established under this funding category.

In addition to Legacy Roads and Trails, other programs and authorities are available to reduce deferred 

maintenance or address resource issues relative to roads and trails, including Capital Improvement and 

Maintenance–Roads, and Trails, and Integrated Resource Restoration.

Okanogan and Wenatchee National Forests

The existing culvert on the Cub Creek was removed 

and replaced with a 26-foot span wood bridge resulting 

in the reduction of fine sediment deposits to the lower 

Chewuch River which provides spanning and rearing 

habitat for steelhead and spring chinook trout. The 

new structure will pass the 100-year flood event and 

aid in the effort to restore anadromous fish habitat in 

the Methow River basin.

 
FY 2011 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 8-21

Partnerships

The Legacy Roads and Trails program leverages road and trail work with partnership funds and in-kind 

contributions. Partnerships include volunteers, youth organizations, watershed groups, wildlife and 

fisheries organizations, tribes, and private landowners.
FY 2011 Budget Justification USDA Forest Service

Land Acquisition 9-1

Appropriation Land Acquisition

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other 

Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent 

of 

Program 

Change

Land Acquisition

Annual Appropriations $49,775 $63,522 $80 $10,062 $73,664 16%

Land Acquisition Total $49,775 $63,522 $80 $10,062 $73,664 16%

Annual Appropriation FTEs 56 45 45

Total Full-Time Equivalents 56 45 45

Land Acquisition Activities

Land Acquisition Management $8,000 $8,000 $80 $920 $9,000 12%

Purchase Land $41,775 $55,522 $0 $9,142 $64,664 16%

Appropriation Acquisition of Lands for National Forests, Special Acts

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent 

of 

Program 

Change

Acquisition of Lands for National Forests Special Acts

Annual Appropriations $1,050 $1,050 $0 $0 $1,050 0%

Acquisition of Lands for National Forests Special Acts Total $1,050 $1,050 $0 $0 $1,050 0%

Annual Appropriation FTEs 1 0 0

Total Full-Time Equivalents (FTEs) 1 0 0

Appropriation Acquisition of Lands to Complete Land Exchanges

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent 

of 

Program 

Change

Acquisition of Lands to Complete Land Exchanges

Annual Appropriations $41 $250 $0 $0 $250 0%

Acquisition of Lands to Complete Land Exchanges Total $41 $250 $0 $0 $250 0%

Annual Appropriation FTEs 0 0 0

Total Full-Time Equivalents (FTEs) 0 0 0

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Land Acquisition

Number of acres acquired or donated 49,363 125,742 83,757 27,449 20,800 23,900

Priority acres acquired or donated that reduce 

the conversion of forests, grasslands, 

aquatic, and riparian ecosystems to 

incompatible uses in order to improve and 

maintain ecological conditions for federally 

listed and candidate species, species of 

concern and species of interest 31,460 20,377 32,915 20,495 16,640 20,100
FY 2011 Budget Justification USDA Forest Service

Land Acquisition 9-2

FY 2011 Program Changes

Land Acquisition

The FY 2011 President’s Budget proposes $73,664,000 for Land Acquisition, a program increase of 

$10,062,000 over FY 2010. The Land and Water Conservation Fund (LWCF) provides the principal 

source of funds for land acquisition, and the proposed program increase reflects the President’s 

commitment to full funding of LWCF by 2014. In FY 2011, program focus will be placed on 

acquiring the highest priority lands displayed in Table A. These acquisitions will provide public access 

for high quality outdoor recreational opportunities, protect the integrity of undeveloped lands, and 

enhance habitat quality in the National Forest System (NFS). Further all of these proposed land 

acquisition projects are land within National Forest boundaries, so acquiring them will reduce the Forest 

Service’s expenditures associated with boundary management and fire suppression. 

 The Forest Service has instituted significant changes to the LWCF program for FY 2011 to align with 

Administration priorities and respond to input from OMB, Congress, and partners. A Forest Service 

panel selected the President’s 2011 Project list based on selection criteria, revised to align with the WCF

Act, the USDA Forest Service Strategic Plan FY 2007- FY 2012, and USDA’s priorities. A template was 

used to standardize project submissions, and a new system is being used to track project success. The 

new criteria used to rank project proposals considers watershed protection, wetland preservation, critical 

habitat, adaptability to climate change, potential for land conversion, recreation opportunities, cultural 

resource preservation, siting in a Congressionally designated area, and cost savings gained through 

management efficiencies.

Acquisition of Lands for National Forests Special Acts; Acquisition of Lands to Complete Land 

Exchanges

The request includes $1,050,000 for the Acquisition of Lands for National Forests Special Acts and 

$250,000 for Acquisition of Lands to Complete Land Exchanges. These programs are funded at the same 

program level as FY 2010. Funds will be used to acquire lands that protect critical watersheds, address 

flood damaged areas, and protect forested lands and resources.

Past Performance

In FY 2009, the agency surpassed its lands purchase target by 112 percent. The majority of this increase 

was due to a 1,750- acre donation from The Nature Conservancy on the Lolo National Forest.

Program Description

Program Overview

Land Acquisition – The Land Acquisition program provides for the acquisition of lands, waters, and 

related interests within the NFS for outdoor recreation, conservation of open space, conservation of 

wildlife and threatened and endangered species habitat, watershed protection, resource management, and 

public access. Acquiring parcels through this program preserves the integrity of undeveloped lands and 

prevents their conversion to uses incompatible with agency objectives. Funding ensures that both 

traditional uses of private lands and public values of forest resources are protected for future generations. 

The Land Acquisition program plays an important role in restoring the ecosystem function and resiliency 

of landscapes in the face of climate change. These contributions include acquisition of lands to 

consolidate critical aquatic and terrestrial habitats, acquisition of watersheds that serve as natural 
FY 2011 Budget Justification USDA Forest Service

Land Acquisition 9-3

reservoirs for downstream water supply, and the acquisition of vegetated lands that sequester carbon. 

Land acquisition secures ecosystem services such as sequestration of atmospheric carbon, retention of 

snow and water in intact watersheds, and improvement of water quality. Maintaining these ecosystem 

services requires an integrated, landscape-level approach across land ownerships that can be facilitated

through land purchases.

The program is delivered through the following activities:

Land Acquisition Management - Covers expenses to complete land acquisitions and donations, 

including costs associated with title search, appraisals, land acquisition surveys, and legal document 

preparation. Acquisition management funds also cover administrative costs associated with 

exchanges and donations when the land acquired through these methods are within an approved 

project area.

 

Purchase Land - Funds pay for the cost of purchased lands and land equalization cash payments for 

those exchanges that would otherwise qualify for purchase.

Acquisition of Lands for National Forests, Special Acts – This program provides for the acquisition of 

lands to protect watersheds, minimize soil erosion, and rehabilitate specified national forests in Nevada, 

Utah, and California. 

Acquisition of Lands to Complete Land Exchanges – This program provides for the acquisition of 

lands through land exchanges with funds collected from the exchange or sale of NFS lands with State, 

county, or municipal governments, public school authorities, or non-Federal parties, when in the public 

interest to do so. 

Allocation and Integration 

Projects under the Land Acquisition program are selected using the agency’s new Strategic Land 

Acquisition Rating System (SLARS). Criteria tie the selection process to the Land and Water 

Conservation Fund Act and the agency’s strategic plan goals and objectives, and are used to identify and 

prioritize acquisitions to maximize the greatest public benefit. Congressionally-approved project funds 

are allocated to the benefiting regions as soon as all parties are ready to close on the sale of the property.

Acquisition management funding is allocated to the regions using criteria based on workload, including 

prior year accomplishments, previously unexpended appropriations, and new current fiscal year 

appropriations for projects. 

Partnerships 

The agency coordinates with other Federal agencies—such as the Bureau of Land Management, the 

National Park Service, the Department of Defense, and the U.S. Geological Survey. The Agency also 

coordinates with land trust organizations, local governments, Indian tribes and native corporations, 

conservation organizations, landowners, and other stakeholders. These agencies and organizations help to 

identify lands within, adjacent, and near the national forests and grasslands with high ecological, 

recreation, social, or economic values, and identify opportunities for partnership and coordinated 

conservation, eliminating redundant efforts. The program makes use of cost-shares from partners. The 

program creates and implements land stewardship strategies with other Federal land management 

agencies and leverages funds to secure high priority resource lands. In particular, the Federal Land 

Transaction Facilitation Act, operated by the Bureau of Land Management, has become a significant 

source of funding to purchase critical land parcels for inclusion in the NFS.
FY 2011 Budget Justification USDA Forest Service

Land Acquisition 9-4

Table A

President’s FY 2011 Project List1/

1/ Project information required under H.R. 108-195 for operation and maintenance costs, third party involvement, and the long term national plan 

justification is being included in the project fact sheets provided under separate cover.

Project Name Forest State Amount

Rocky Fork Cherokee TN 6,000,000

Montana Legacy Completion Flathead/Lolo MT 6,000,000

Cube Cove Tongass AK 3,500,000

Packard Ranch - Phase III Coconino AZ 1,335,000

Hells Canyon NRA Wallowa-Whitman OR 2,800,000

Tenderfoot Lewis & Clark MT 4,000,000

Greater Yellowstone Multiple MT/ID 2,000,000

Missouri Ozarks Mark Twain MO 1,100,000

Idaho Wilderness Wild & Scenic Rivers Salmon-Challis ID 1,000,000

Uinta-Wasatch-Cache Uinta-Wasatch-Cache UT 500,000

Pacific NW Streams Multiple OR/WA 1,500,000

Ophir Valley Uncompahgre CO 1,000,000

North Carolina NFs in North Carolina NC 1,500,000

Summers Meadows Humboldt-Toiyabe CA 2,400,000

Sierra Nevada Checkerboard Tahoe/Eldorado CA 2,000,000

Lady C Ranch Black Hills SD 915,000

Shield Ranch Coconino AZ 1,500,000

Great Lakes/Great Lands (Upper) Hiawatha/Ottawa MI 1,300,000

Eldorado Meadows Eldorado CA 1,500,000

Little Echo Lake Arapaho CO 950,000

Columbia River Gorge NSA Multiple WA 850,000

Washington Cascade Ecosystem Wenatchee WA 1,500,000

Consolidation Shasta-Trinity CA 1,300,000

Minnesota Wilderness Superior/Chippewa MN 1,400,000

Suwannee Wildlife Corridor NFs in Florida FL 2,000,000

Upper Lochsa Clearwater ID 2,000,000

Fossil Creek Coconino AZ 900,000

Georgia Mountains Chattahoochee-Oconee GA 1,700,000

Russell Creek Shoshone WY 2,500,000

Clarion Wild and Scenic River Allegheny PA 1,300,000

Ashdown Gorge Dixie UT 1,414,000

Total Purchase 59,664,000

Acquisition Management 9,000,000

Critical Inholdings/Wilderness Protection 4,000,000

Cash Equalization 1,000,000

Total 73,664,000
FY 2011 Budget Justification USDA Forest Service

Other Appropriations 10-1

Budget Line Item Range Betterment Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Range Betterment Fund

Annual Appropriations $2,581 $3,600 $0 $0 $3,600 0%

Range Betterment Fund Total $2,581 $3,600 $0 $0 $3,600 0%

Annual Appropriation FTEs 11 12 12

Total Full-Time Equivalents (FTEs) 11 12 12

Table Note: FY 2006 accomplishment data underreported in the database of record. Reporting instructions clarified for FY 2007 forward.

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Range Betterment Fund

Number of range structural improvements 44 270 516 374 500 370

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $3,600,000 for Range Betterment, the same program level as 

FY 2010. This program will emphasize essential structural and non-structural improvements prescribed 

in grazing allotment NEPA decision documents. Treatment of invasive plant species related to permitted 

livestock use will continue to be a priority for non-structural rangeland improvement work.

Past Performance

In FY 2009, 162 structures were constructed or improved using Range Betterment Funds and an 

additional 211 structures through other programs for a total of 374 structures. Range Betterment funds 

also accounted for 113,462 acres of rangeland vegetation improvement.

Authorities

Federal Land Policy and Management Act of 1976; (43 U.S.C. 1751) P.L. 94-579, as amended by, Public 

Rangelands Improvement Act of 1978 (43 U.S.C. 1751(b)(1) P.L. 95-514. 

Program Overview

The Range Betterment program utilizes one-half of grazing receipts from national forests in the 16 

Western States for range rehabilitation, protection, and improvements on the national forests from which 

the receipts were collected. Funds are allocated to the region where receipts are collected. Activities 

performed to arrest range deterioration and improve forage conditions include: construction of water 

developments to aid in livestock distribution, building fences to protect sensitive resources, and nonstructural improvements to soil and vegetation cover on NFS lands. These activities enhance or stabilize 

vegetative conditions, improve water quality, maintain riparian areas and stream banks, and conserve 

threatened and endangered plant and animal species. Funds may also be used to treat noxious weeds that 

are present as a result of permitted livestock grazing.
FY 2011 Budget Justification USDA Forest Service

Other Appropriations 10-2

Partnerships

Grazing permittees are significant partners in the implementation of rangeland betterment projects. 

Program funds are leveraged with permittees’ investments to enhance livestock management. This 

partnership also provides a foundation for involving a variety of special interest organizations such as 

Trout Unlimited or State cattlemen’s associations, further enhancing opportunities for rangeland 

betterment.
FY 2011 Budget Justification USDA Forest Service

Other Appropriations 10-3

Budget Line Item Gifts, Donations, and Bequests for Forest and 

Rangeland Research

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Gifts, Donations, & Bequests for Research

Annual Appropriations $50 $50 $0 $0 $50 0%

Gifts, Donations, & Bequests for Research Total $50 $50 $0 $0 $50 0%

Annual Appropriation FTEs 0 0 0

Total Full-Time Equivalents (FTEs) 0 0 0

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $50,000 for Gifts, Donations, and Bequest for Research, the 

same level as FY 2009. 

Past Performance

In FY 2009, donations were received from individuals as well as businesses for the use of research work 

units and other organizational sub-units to further their research and development programs. The funds 

were used to purchase supplies and equipment, and to offset travel to training and seminars.

Program Overview

This special account serves for acceptance of gifts, donations, and bequests for deposit that are used to 

establish or operate any forest and rangeland research facility. These gifts or donations can be received 

from outside sources, such as individuals and businesses.
FY 2011 Budget Justification USDA Forest Service

Other Appropriations 10-4

Budget Line Item Management of National Forest Lands for Subsistence Uses

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Mgt. of NF Lands for Subsistence Uses

Annual Appropriations $5,000 $2,582 $24 $0 $2,606 0%

Mgt. of NF Lands for Subsistence Uses Total $5,000 $2,582 $24 $0 $2,606 0%

Annual Appropriation FTEs 18 10 10

Total Full-Time Equivalents (FTEs) 18 10 10

FY 2011 Program Changes 

The request includes $2,582,000 for the Management of National Forest Lands for Subsistence Uses 

(Subsistence) program, resulting in no change from FY 2010. The agency will continue to meet its 

responsibilities under the 1980 Alaska National Interest Lands Conservation Act (ANILCA) through an 

integrated management program and through use of other National Forest System funds.

Past Performance

In FY 2009, the Forest Service completed 11 management analyses specific to the national forests in 

Alaska. The agency also participated in rulemaking with Department of the Interior agencies across all of 

the Federal public lands in the State. In addition, 12 fisheries stock assessments, 3 population surveys for 

game species, 3 traditional ecological knowledge studies, and 5 in-season emergency special actions for 

the conservation of fish and wildlife were accomplished. Law enforcement personnel conducted fish and 

wildlife enforcement which included special emphasis patrols and education.

Authorities

Alaska National Interest Lands Conservation Act (16 U.S.C. 3210). This Act authorizes the Secretary of 

Agriculture to issue regulations relevant to the taking of fish and wildlife on public lands in the State of 

Alaska.

Program Overview

The Alaska National Interest Lands Conservation Act (ANILCA) provides rural Alaskan residents a 

subsistence priority to harvest fish and wildlife on Federal lands over sport and commercial uses. The 

statute is in direct conflict with the Alaska State Constitution, which prohibits granting subsistence 

priority to rural residents. As a result, the Federal government assumed responsibility for subsistence 

management on Federal public lands in 1990 and expanded its responsibility to Federally-reserved 

navigable waters in Alaska in 1999. 

The Subsistence program is delivered through the following activities:

Regulatory – This activity includes an annual cycle of rule promulgation for harvesting fish and 

wildlife, in-season actions to address immediate conservation issues, and administration of harvest 

permits to manage use. The Alaska Regional Forester is delegated to act for the Secretary of 

Agriculture for all aspects of the Federal interagency program. Federal subsistence hunting and 

fishing regulations must be reviewed annually to ensure a sustained supply of wild food resources. 

The Forest Service receives up to 120 proposed changes to the existing regulations annually.
FY 2011 Budget Justification USDA Forest Service

Other Appropriations 10-5

Information Gathering – This activity includes fish and wildlife monitoring necessary for regulatory 

purposes and to ensure the conservation of fish and wildlife. Most monitoring is implemented 

through contracts and agreements with tribal and other local organizations, and with the State of 

Alaska. Collection and analysis of critical information is used to substantiate which regulatory 

changes should be implemented, and justification for those which cannot be supported.

Law Enforcement and Education – This activity includes enforcement of Federal regulations for the 

taking of fish and wildlife on 22 million acres, approximately 75 waterways and navigable lakes, and 

areas of the Prince William Sound. It also includes education of subsistence users and others to 

reduce the need for enforcement action. Enforcement of Federal subsistence hunting and fishing 

regulations requires protecting the subsistence priority and conserving healthy fish and wildlife 

populations.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-1

Appropriation Wildland Fire Management

(dollars in thousands)

 

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Wildland Fire Management

Annual Appropriations $2,131,630 $2,103,737 $16,180 -$47,567 $2,072,350 -2%

Supplemental & Emergency Funding - Fire $200,000 $0 $0 $0 $0

Supplemental & Emergency Funding - ARRA $500,000 $0 $0

Wildland Fire Management Total $2,831,630 $2,103,737 $16,180 -$47,567 $2,072,350 -2%

Annual Appropriation FTEs 12,271 14,579 14,568

Supplemental & Emergency Funding - Fire FTEs 254 0 0

Supplemental & Emergency Funding - ARRA 30 36 0

Total Full-Time Equivalents (FTEs) 12,555 14,615 14,568

Wildland Fire Management

Preparedness $675,000 $675,000 $9,387 $323,839 $1,008,226 48%

Fire Operations - Suppression $993,947 $997,505 $3,834 -$406,339 $595,000 -41%

Hazardous Fuels $328,086 $340,285 $2,639 $6,523 $349,447 2%

NFP Rehabilitation & Restoration $11,500 $11,600 $35 -$2,600 $9,035 -22%

NFP Research & Development $23,917 $23,917 $143 $0 $24,060 0%

Joint Fire Science Program $8,000 $8,000 $9 $0 $8,009 0%

NFP Forest Health Management - Federal Lands $17,252 $20,752 $2 -$6,312 $14,442 -30%

NFP Forest Health Management - Cooperative Lands $9,928 $11,428 $27 -$4,428 $7,027 -39%

NFP State Fire Assistance $55,000 $71,250 $104 -$21,250 $50,104 -30%

NFP Volunteer Fire Assistance $9,000 $9,000 $0 -$2,000 $7,000 -22%

Collaborative Forest Landscape Restoration Fund $0 $10,000 $0 -$10,000 $0 -100%

Rescission of Prior Year Unobligated Balances $0 -$75,000 $0 $75,000 $0 0%

*In FY 2011 the Collaborative Forest Landscape Restoration Fund is being requested under the National Forest Systems 

appropriation.

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & Other 

Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

FLAME Wildfire Suppression Reserve Fund

Annual Appropriations $0 $413,000 ($122,000) $291,000 -30%

FLAME Wildfire Suppression Reserve Fund Total $0 $413,000 ($122,000) $291,000 -30%

Presidential Wildland Fire Contingency Reserve

Annual Appropriations $0 $0 $282,000 $282,000 0%

Presidential Wildland Fire Contingency Reserve Total $0 $0 $282,000 $282,000 0%

Wildland Fire Management Programs

The FY 2011 President’s Budget proposes $2,072,350,000 for Wildland Fire Management, a program 

decrease of $47,567,000 below the FY 2010 level. This is largely the result of decreases in funding 

requested for National Fire Plan activities as well as a shift in funding for the Collaborative Forest 

Landscape Restoration Fund from this account to the National Forest System. The budget request also 

includes, in separate appropriation accounts, $291 million for a FLAME Wildfire Suppression Reserve 

Fund and $282 million for a contingency reserve account. The request funds programs that protect life, 

property, and natural resources on 193 million acres of National Forest System (NFS) land and an 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-2

additional 20 million acres of adjacent State and private lands protected through fee or reciprocal 

protection agreements. 

The Wildland Fire Management program recognizes the importance of integrating fire as a critical natural 

process in land and resource management plans and activities, managing wildfire across landownership 

boundaries, and applying the best available science. The Forest Service will reduce fuels on 

approximately 1,600,000 acres of national forest and adjacent lands within the Wildland Urban Interface 

(WUI), with Community Wildfire Protection Plans (CWPPs) identifying areas to be treated.

This request continues the President’s commitment to responsibly budget for wildfires. The 10-year 

average of suppression costs is fully funded, and the allocations between preparedness and suppression 

funds have been adjusted to ensure that readiness needs are fully funded for this fiscal year. Suppression 

funding will come from both the regular suppression account and the FLAME Wildfire Suppression 

Reserve Fund account. The new three-tier system of suppression, FLAME, and Contingency funds 

requires different levels of responsibility for authorizing the expenditure of funds including the Secretary 

of Agriculture and the President of the United States in the chain of command for wildfire suppression. 

This will ensure that fire management resources are used in a cost-effective manner in high priority areas, 

such as the Wildland Urban Interface (WUI), and that sufficient funds are available to fight fires without

diverting funds from other critical Forest Service programs and activities.

Shifts in aviation, personnel and overhead costs to the suppression budget line item have masked the true 

cost of the agency’s readiness needs. An analysis of base preparedness requirements is an essential 

element of this year’s firefighting budget reforms. The request displays and includes the costs of aviation

assets and cost pools that have been shifted into the Suppression account during the past 6 years: FY 2005

– FY 2010. These program readiness costs have been shifted back into the Preparedness account 

resulting in an increased Preparedness request and a decreased Suppression request with no net change in 

resource availability from FY 2010. The request also accurately funds the Preparedness account.

Total Suppression Funding Available in FY 2011

Account FY 2011 Budget Request

 Suppression account $ 595,000,000

 FLAME Wildfire Contingency Reserve $ 291,000,000

 Presidential Wildland Contingency Reserve $ 282,000,000

Sub-total $ 1,168,000,000

 Costs now appropriately covered under Preparedness

 account

$ 333,000,000

Total FY2011 Suppression Funds Available

 (provided for historical comparison)

$ 1,501,000,000

The FY 2011 President’s Budget also builds off of the investments made through the American Recovery 

and Reinvestment Act of 2009 (ARRA). The ARRA provided $1.15 billion to the Forest Service in order 

to create jobs and help promote economic recovery, including $500 million to fund including the removal 

of hazardous fuels.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-3

Budget Line Item Preparedness

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Preparedness

Annual Appropriations $675,000 $675,000 $9,387 $323,839 $1,008,226 48%

Preparedness Total $675,000 $675,000 $9,387 $323,839 $1,008,226 48%

Annual Appropriation FTEs 6,246 6,246 6,900

Total Full-Time Equivalents (FTEs) 6,246 6,246 6,900

FY 2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY 2009 

Actual

FY 2010 

Target

FY 2011 

Target

Preparedness

Percent change from the 10-year average for 

the number of wildfires controlled during 

initial attack. -0.4% -1.0% -0.4% 0.3% 0.5% 0.5%

Percent change from the 10-year average for 

the number of human caused wildfires. 4.5% -0.9% 2.0% 5.0% -1.0% -1.0%

True Cost of Preparedness is Accurately Reflected in the FY 2011 Budget

Preparedness 675,000 675,000 1,008,226 +333,226

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY 2011 

vs. 

FY 2010

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $1,008,226,000 for the Preparedness, a program increase of 

$323,839,000 over the FY 2010 level. This increase represents a restructuring of the preparedness and 

suppression accounts to fully reflect the costs of readiness resources and program management. This shift 

is offset by a corresponding decrease in the suppression request. In past years aviation and cost pools

related to preparedness were paid out of the suppression account in order to maintain initial attack 

suppression capability. Unfortunately, this procedure artificially inflated the 10-year average cost of fire 

suppression. Therefore, the Forest Service has now properly re-aligned the budget to ensure that 

preparedness costs are fully identified separate from suppression. This will affect future computations of

the 10-year average.

The request funds readiness resources, as displayed in the table below, to efficiently respond to unplanned 

wildland fires. Once an unplanned fire occurs responding resources are funded through the Suppression 

account. The Preparedness program objective is to ensure agency capability to protect life, property, and 

natural resources in an efficient, cost-effective manner on 193 million acres of National Forest System 

land and 20 million acres of adjacent State and private lands protected through fee or reciprocal protection 

agreements. Firefighter and public safety are the primary considerations for all operations. 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-4

In FY 2011, the agency will continue to emphasize strategies to increase operational efficiency, including: 

the use of Predictive Services to analyze fire season potential to strategically deploy firefighting 

resources; the use of risk-informed, performance-based fire suppression strategies; the deployment of 

web based decision support tools at the incident and landscape scale (e.g., Wildland Fire Decision 

Support System and Fire Program Analysis); the development, enhancement, and integration of 

technology applications such as: Resource Order and Status System, I-SUITE, and VIPR; the 

centralization of aviation assets; the use of exclusive use aviation contracts; and the realignment of 

leadership and support positions where appropriate.

The Forest Service will continue its strategy to deploy, assess, and improve the Fire Program Analysis 

system. The system provides an interagency investment analysis of initial response, hazardous fuels, and 

suppression, displaying resource, cost, and effectiveness trade-offs between program components relative 

to performance metrics. In FY 2011, the Forest Service will provide approximately $1.9 million for 

operation and maintenance of the system and implementation and science support staff. The full cost of 

system development through FY 2010 is projected at $43.9 million, which is shared equally with the 

Department of the Interior. This cost does not include approximately $10 million contributed by the five 

Federal wildland fire agencies during the development process. 

Reviews of the FY 2009 Analysis concluded that the system and underlying science assisted managers in 

answering fire planning and budgeting questions. Some data and model issues needed to be corrected or 

improved. Many of the recommended adjustments are in place for the FY 2010 Analysis. These 

adjustments will increase data consistency and quality which will increase confidence in the outputs. 

Additionally, an external scientific peer review will be conducted in FY 2010 to provide further insight 

into the system and its application. Assessment of the FY 2010 Analysis, findings of the external review, 

and ongoing and planned system enhancements will ensure that the system is improved each year and that 

it continues to meet its key objectives. Additional information is available at: http://www.fpa.nifc.gov/.

Past Performance

The agency’s preparedness performance measures identify key program outcome and efficiency measures 

that focus on reducing fire risk. These measures track the agency’s success in reducing human-caused 

wildfires and maintaining its ability to control wildfires effectively. In FY 2009, the number of humanResource Summary: FY 2008 - 2011

Resource

FY08

Actual

FY09

Actual

FY10

Planned

FY11

Estimated

Firefighters (FFTR) – Total is inclusive of categories below 10,480 10,480 10,480 10,480

 Type I Interagency Hot Shot Crews (twenty person)

67 crews

1,340 FFTR

67 crews

1,340 FFTR

67 crews

1,340 FFTR

67 crews

1,340 FFTR

 Other Firefighters 8,420 8420 8,420 8,420

 Smoke Jumpers 320 320 320 320

 Prevention Technicians 400 400 400 400

Engines 950 950 950 950

Heavy Equipment – Dozers, Tractor Plow Units, Tenders 210 210 210 210

Helicopters

 Type 1* 18 & (17) (28) (26) 26

 Type 2* 34 31&(10) (41) 41

 Type 3* 53 53 (52) 52

Airtankers

 Large Airtankers (up to 20) (19) (up to 19) up to 19

 Single Engine Airtanker 2 2 2 2

* Numbers in brackets indicate resources previously funded under Suppression.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-5

caused wildfires was 5.1 percent above the 10-year average. This measure has significant variability over 

the 10-year period and is affected by local weather. These local fire conditions account for the small 

percent increase seen in FY 2009 and do not indicate a long-term trend in the frequency of human caused 

fires. The agency’s initial attack success rate was within 0.3 percent of the 10-year average and indicates 

that the agency is maintaining ability to respond effectively to wildfires. Additionally, the Forest Service

is implementing the National Fire and Aviation Management Strategic Plan which provides a framework 

for cost efficient and effective activities that support agency objectives.

Program Description

Overview

The Preparedness program protects National Forest System (NFS) lands from wildfire damage by 

deploying firefighters and other suppression resources to reduce threats to life and values at risk, 

commensurate with land management objectives. It provides the basic fire organization capability to 

prevent forest fires and ensure prompt and effective initial response operations to wildfires. Key 

components of mission delivery are readiness capability (expressed via resources and capability) and 

program leadership necessary to ensure safe and effective operations. Mission delivery also includes 

planning, prevention, detection, information and education, training, equipment, advancement of 

technology, program analysis and reviews, and other fire program management activities.

Allocation and Integration

Preparedness funds are allocated to regions based on predicted fire activity and anticipated workloads. 

The placement, and associated funding allocations, of specific resources considers logistical and 

mobilization efficiencies. The agency’s overall readiness capability and resource geographical 

placements have been established through various fire planning and budgeting analyses. However, as the 

fire season develops and ongoing risk is assessed, national resources are repositioned to ensure timely and 

effective responses. Predictive services and other resources are used to analyze potential seasonal fire 

activity to guide strategic placement of resources. 

The Forest Service will continue deployment and assessment of the Fire Program Analysis system. 

Interagency fire planning units are scheduled to complete their FY 2010 Analysis in the spring of 2010. In 

FY 2010, an interagency team will be assigned to assist with the national analysis process that will be 

used by agency headquarters to guide final allocations to the field and to offer advice on specific aspects 

of implementation. Then a national analysis and outputs will be used to inform and develop FY 2011 and 

FY 2012 fire planning and budget processes and decisions. Specifically, these outputs will be used in the 

formulation of the FY 2012 federal wildland fire management preparedness and hazardous fuels programs 

and budgets. Outputs from the FY 2010 Analysis will also be used to evaluate FY 2011 program budget 

allocations relative to the agency’s potential performance. As data consistency and quality improve the 

Forest Service will gain greater confidence in outputs. As this occurs, the agency will collaboratively 

propose program and budget changes to increase efficiencies and support the agency’s stated goals and 

objectives. 

Partnerships

The Preparedness program has numerous partnerships with other Federal agencies and States which 

include protection agreements, collaborative research efforts, and development of an interagency fire 

planning and budgeting analysis system (Fire Program Analysis). The agency also collaborates with 

cooperators in training, planning, equipment use contracts, and interagency fire coordination centers. 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-6

The Forest Service both sponsors and participates in interagency training exercises. Municipal, State, and 

other fire, emergency, and medical professionals are actively recruited for incident training drills. The 

experience and education provided to the participants strengthens job performance and communication 

throughout the United States emergency response community.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-7

Budget Line Item Suppression

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Fire Operations - Suppression

Annual Appropriations $993,947 $997,505 $3,834 -$406,339 $595,000 -41%

Supplemental & Emergency Funding - Fire $200,000 $0 $0 $0 $0

Fire Operations - Suppression Total $1,193,947 $997,505 $3,834 -$406,339 $595,000 -41%

Annual Appropriation FTEs 2,987 5,657 5,003

Supplemental & Emergency Funding - Fire 0 0 0

Total Full-Time Equivalents (FTEs) 2,987 5,657 5,003

FY 2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY 2009 

Actual

FY 2010 

Target

FY 2011 

Target

Fire O perations - Suppression

Percent of fires not contained in initial 

attack that exceed a Stratified Cost Index 

(SCI) 26.5% 22.0% 24.3% 22.0% 19.0% 18.0%

Three-year average percent of fires not 

contained in initial attack that exceed a 

Stratified Cost Index (SCI) N/A 23.9% 22.4% 20.4% 20.4% 19.6%

 

Total Suppression Funding Available in FY 2011

Account FY 2011 Budget Request

 Suppression account $ 595,000,000

 FLAME Wildfire Contingency Reserve $ 291,000,000

 Presidential Wildland Contingency Reserve $ 282,000,000

Sub-total $ 1,168,000,000

 Costs now appropriately covered under Preparedness

 account

$ 333,000,000

Total of All FY2011 Suppression Funds Available

 (provided for historical comparison)

$ 1,501,000,000

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $595,000,000 for Suppression. This level reflects a change 

based on a realignment of aviation assets and cost pools that had been shifted from Preparedness to 

Suppression in the past 6 years and funding of the FLAME Act account. The request represents the most 

recent 10-year average suppression cost adjusted for inflation and includes indirect costs related to 

suppression as required by Congress. The Budget also proposes $291,000,000 for funding the FLAME 

Act account. Further, in recognition that the 10-year average may not always be sufficient; a 

$282,000,000 Contingency Reserve for fighting catastrophic wildfires is also proposed. (See the account 

for the FLAME Act fund and the Contingency Reserve later in this chapter for more information.) 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-8

The Suppression account funds activities to suppress wildland fires on or threatening NFS lands, other 

Federal lands, and 20 million acres of non-Federal lands under fire protection agreements. Funding for 

the Wildland Fire Suppression program will enable the agency to respond to unplanned wildland fire 

incidents which threaten lives, property, and resources on more than 210 million acres of agencyprotected lands.

In recent years, fires have become larger and more difficult to suppress due to a variety of factors, 

stemming from climate change, persistent drought and hazardous fuels conditions and the increased 

magnitude and complexity of the Wildland-Urban Interface (WUI). As use of Federal firefighting 

resources to address more complex fires has grown, so have the costs of the 10-year average of annual 

fire suppression expenditures.

The Forest Service recognizes the financial impact of WUI suppression activities on costs and will

continue to aggressively pursue cost-mitigation measures including: focusing the majority of hazardous 

fuels funding for treatments in the WUI; utilizing risk-informed performance based suppression 

strategies; clarifying roles and responsibilities in the WUI; utilizing appropriate cost-share agreements; 

and deploying decision support tools.

The FY 2011 Budget represents an important development in the management and oversight of wildfire 

suppression operations. The USDA Forest Service and the Department of the Interior are committed to 

restoring the resilience and diversity of fire-adapted ecosystems on the landscape consistent with public 

safety needs. The agencies will identify, establish, and maintain necessary governance and risk 

management protocols that will guide program management and incident response with the application of 

resources to reduce the unnecessary risk to firefighter safety in the short term and to the long-term 

resiliency of fire-adapted ecosystems. 

A key component of this effort is reflected in the FY 2011 Budget, which for each agency proposes a new 

three-tier system of (1) a regular suppression account, (2) the FLAME Wildfire Suppression Reserve 

Fund account, and (3) a Presidential Wildfire Contingency Reserve account. Each account requires a 

different level of responsibility for authorizing the expenditure of funds and includes the Secretaries of 

Agriculture and the Interior and the President in the chain of command for wildfire suppression. Each 

element of this structure – Wildland Fire Management funding for suppression operations accountable to 

the agency’s senior line officers; the FLAME Fund resources available to the respective Secretary to 

whom the agency’s senior line officers are accountable; and the Contingency Reserve made available 

subject to a finding by the President and to whom the respective Secretaries are accountable- forms a 

comprehensive framework that aligns funding, operations, performance, and accountability within a welldefined budget structure and clear chain of command.

In FY 2011, the Forest Service will allocate funds from the Suppression account for initial attack 

firefighting activities. As fires escape initial response, and as Type 1 or Type 2 Incident Management 

teams are assigned to those escaped incidents, a risk assessment and a formal risk decision will be made. 

This will become part of the declaration for a request to the Secretary of Agriculture to move funds from 

the FLAME Act account into the Suppression account pursuant to the provisions set forth in the Act. The 

FLAME fund is the second tier of responsibly budgeting for wildfire suppression.

The Forest Service will continue deployment and improvement of the Wildland Fire Decision Support 

System (WFDSS). This system is structured to provide access to a suite of decision support tools, 

documentation of fire-management decisions, and long-term operational plans when needed. WFDSS

supports managers in analyzing risks and decision making regarding strategies and tactics on wildland 

fires. WFDSS is a cost-effective decision-analysis process for all fires and is replacing previous systems. 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-9

Implementation of the updated guidance for the Federal Wildland Fire Policy will continue to be 

supported by WFDSS and the National Fire Decision Support Center (NFDSC).

The Forest Service will also expand its managing wildfires to meet land management objectives. The 

Forest Service will make a concerted effort to allow fire to return to the landscape when these fires will 

improve the health of the forest and when risks to safety and communities make it appropriate to do so. 

Past Performance

The Forest Service suppression performance measures are program outcome and efficiency measures that 

focus on reducing fire risk. To help analyze suppression costs the agency uses an efficiency measure that 

compares actual to expected suppression costs via a stratified cost index (SCI). SCI is developed 

geographically based on the number of large fires in the preceding 10 years and indicates those fires with 

costs more than one standard deviation higher or lower than expected. In real time, the SCI provides a 

comparison of a fire’s expenditures to historical fires with similar characteristics, increasing cost 

awareness and providing a basis for fire incident budgeting. 

SCI is also used to monitor mid- and long-term suppression expenditure trends. The number of incidents 

exceeding the SCI decreased from 24.3 percent in FY 2008 to 22.0 percent in FY 2009. Contributing 

factors include a less severe fire season in many areas of the country and an emphasis on directing 

resources to those National Forests where large fires often occur. National Incident Management 

Organization (NIMO) teams are actively engaging these Forest and local communities in risk assessment 

and the development of risk-informed decision making. The agency will continue to strive to increase 

incident-management efficiency. To that end, the agency is implementing the National Fire and Aviation 

Management Strategic Plan which provides a framework for cost efficient and effective activities that 

support agency. The Forest Service is continuing the development of Large Fire Management Protocols 

and Risk Assessment on those National Forests that historically have experienced the majority of large 

fire suppression expenditures.

Program Description

This program provides resources to efficiently suppress wildland fires on or threatening NFS lands and 

other Federal and non-Federal lands under fire protection agreements. The program funds firefighter 

salaries (including NIMO salaries), equipment operation, aviation use, incident support costs, 

administrative costs, and other costs associated with fire suppression. The agency provides suppression 

resources to the Department of the Interior on a reciprocal non-reimbursement basis. In addition, the 

Suppression program funds personnel and resources for the following activities: 

Attainment of Resource Benefits (formerly Wildland Fire Use) - Management of naturally ignited,

unplanned wildland fires on NFS lands to accomplish resource management, ecological restoration, and 

fuels reduction goals consistent with the revised guidance for the implementation of the federal wildland 

fire policy and land management plan direction.

Burned Area Emergency Response - Post-fire actions on NFS lands to prevent or minimize unacceptable 

erosion and loss of soil productivity, deterioration of water quality and downstream damage, changes to 

ecosystem function, establishment of non-native invasive species, and degradation of cultural and natural 

resources. 

Severity - Increases readiness and response capability when predicted or actual burning conditions exceed 

those planned and when ignitions are deemed imminent. This capability is also used during early or 

extended fire seasons. 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-10

Non-fire Emergency Management - Supports the Department of Homeland Security, and the Federal 

Emergency Management Agency through Forest Service participation in the National Response 

Framework and other activities authorized by the Stafford Act 42 U.S.C. 5121, as amended. 

The suppression program places an emphasis on contracting efficiencies, management accountability, 

risk-informed decisions, and decision-support tools that will help the agency assess and mitigate risks to 

firefighters and the public and identify and implement efficiencies that contribute to cost reductions and 

efficient management. Specific actions include utilizing an integrated system to procure firefighting 

assets; strengthening funds management by establishing fiscal boundaries and monitoring protocols; 

establishing incident performance metrics; estimating and monitoring budgets for large fires; and 

implementing updated guidance for the Federal Wildland Fire Policy supported by the WFDSS and 

NFDSC. 

Partnerships

The agency maintains strong partnerships with other Federal agencies, States, local government entities, 

and contractors which are essential to ensure protection of life, property, and resources through cost 

effective and efficient operations.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-11

Budget Line Item Fire Operations – Other

(dollars in thousands)

ProgReg / Supp

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Fire Operations - Other

Annual Appropriations $462,683 $496,232 $2,959 -$30,067 $469,124 -6%

Fire Operations - Other Total $462,683 $496,232 $2,959 -$30,067 $469,124 -6%

Annual Appropriation FTEs 3,038 2,676 2,665

Total Full-Time Equivalents (FTEs) 3,038 2,676 2,665

Fire Operations - Other

Hazardous Fuels $328,086 $340,285 $2,639 $6,523 $349,447 2%

NFP Rehabilitation & Restoration $11,500 $11,600 $35 -$2,600 $9,035 -22%

NFP Research & Development $23,917 $23,917 $143 $0 $24,060 0%

Joint Fire Science Program $8,000 $8,000 $9 $0 $8,009 0%

NFP Forest Health Management - Federal Lands $17,252 $20,752 $2 -$6,312 $14,442 -30%

NFP Forest Health Management - Cooperative Lands $9,928 $11,428 $27 -$4,428 $7,027 -39%

NFP State Fire Assistance $55,000 $71,250 $104 -$21,250 $50,104 -30%

NFP Volunteer Fire Assistance $9,000 $9,000 $0 -$2,000 $7,000 -22%
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-12

Budget Line Item Fire Operations – Other

Hazardous Fuels

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Hazardous Fuels

Annual Appropriations $328,086 $340,285 $2,639 $6,523 $349,447 2%

Hazardous Fuels Total $328,086 $340,285 $2,639 $6,523 $349,447 2%

Annual Appropriation FTEs 2,737 2,376 2,376

Total Full-Time Equivalents (FTEs) 2,737 2,376 2,376

 FY 

2006 

FY 2007 

Actual

FY 2008 

Actual

FY 2009 

Actual

FY 2010 

Target

FY 2011 

Target

Hazardous Fuels

Acres of wildland-urban interface (WUI) highpriority hazardous fuels treated N/A 1,138,351 1,944,268 2,189,820 1,470,000 1,600,000

Percentage of total National Forest System 

land base for which fire risk is reduced though 

movement to a better condition class. 1.1% 1.9% 2.1% 2.4% 3.0% 3.1%

Number of acres maintained and improved by 

treatment category (prescribed fire, 

mechanical treatment, and wildland fire use). N/A N/A 1,211,395 1,945,927 1,300,000 1,238,095

Percent of acres maintained and improved by 

treatment category (prescribed fire, 

mechanical treatment, and wildland fire use) 

that changed condition class. N/A N/A 27% 27% 30% 30%

Number of acres restored and maintained per 

million dollars gross investment. N/A N/A 4,103 4,482 3,900 3,614

Acres moved to a better condition class per 

million dollars gross investment. 1,934 1,809 1,721 1,487 1,500 1,428

Number of acres treated to restore fireadapted ecosystems which are moved toward 

desired conditions 991,075 970,641 699,062 799,215 1,180,000 960,000

Percent of acres treated to restore fireadapted ecosystems which are moved toward 

desired conditions 39% 32% 23% 27% 49% 40%

Number of acres treated to restore fireadapted ecosystems which are maintained in 

desired conditions. 830,081 1,022,144 986,507 1,146,720 1,128,000 1,200,000

Percent of acres treated to restore fireadapted ecosystems which are maintained in 

desired conditions. 33.0% 33.0% 32.0% 38.0% 47.0% 50.0%

Percent of treated acres identified in 

Community Wildfire Protection Plans or 

equivalent plans. 17.0% 24.7% 36.0% 41.0% 41.0% 75.0%
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-13

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $349,447,000 for Hazardous Fuels, a program increase of 

$6,523,000 from the FY 2010 level. The Forest Service will reduce fuels on approximately 1,600,000

acres of national forest and adjacent lands, focusing on treating the highest priority acres in the Wildland 

Urban Interface (WUI).

Forest Service research has shown that home ignitability usually is not effectively changed by vegetation 

modification outside of the WUI. Beginning in FY 2011, the Forest Service will focus fuel management 

activities to mitigate hazards and enhance the ability to control fires in the wildland/urban interface 

(WUI).

Funding for hazardous fuels treatments in the WUI will be focused in communities that have identified 

acres to be treated in Community Wildfire Protection Plans (or the equivalent) and have made an 

investment in implementing local solutions to protection against wildland fire Hazardous fuels funds are 

to be predominantly focused on projects within the WUI. The agency is proposing to treat 1.6 million 

acres in the WUI in FY 2011. Some funds can be provided for a limited number of projects outside the 

WUI provided they are identified through the agency prioritization process and are located in proximity to 

the WUI. 

The strategy of focusing on high priority fuels within the WUI will help deter the risks to communities 

posed by wildfires. In addition, hazardous fuels treatments reduce safety risks to firefighters and reduce 

wildfire suppression costs. The hazardous fuels program requires that a fuels treatment effectiveness 

assessment be completed for every wildfire that starts in, or burns in to, a fuel treatment. 

The Hazardous Fuels program will continue to fund the biomass grants program administered by the 

Technology Marketing Unit at the Forest Products Lab at $5 million dollars. Since FY 2005, the 

Hazardous Fuels program has provided funding for this successful grants program, which is targeted at 

small businesses, to help build capacity for biomass utilization in support of fuel reduction and 

restoration. Biomass utilization will provide an alternative residue management strategy contributing to 

rural economic vitality and national energy security. 

In FY 2011, two programs authorized in the 2008 Farm Bill (The Food, Conservation, and Energy Act of 

2008) will be fully funded within the Hazardous Fuels program to encourage market development for 

biomass materials. The Forest Biomass for Energy Program, which is administered by research and 

development, is funded at $15 million. The Community Wood Energy Program, a State and private 

forestry grant program is funded at $5 million. 

The Budget also funds the institutes established under the Southwest Forest Health and Wildfire 

Prevention Act of 2004 (P.L. 108-317) to enhance the capacity to develop, transfer, apply, monitor, and 

update practical science-based forest restoration treatments that will reduce the risk of severe wildfires, 

and improve the health of dry forest and woodland ecosystems in the interior West at $1.5 million.

Past Performance

The Hazardous Fuels program efficiently utilized funds and resources in FY 2009 to exceed its acreage 

target (over 3.5 million acres) for fuels treatments on national forest and adjacent lands. In addition, 

targets were exceeded for WUI treatments and treatment of areas identified in CWPPs. FY 2009 marked 

the first year of tracking the ecological benefits of some naturally ignited fires. Field monitoring found 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-14

that about 300,000 acres burned by naturally ignited fires benefited ecosystems by moving them toward 

desired conditions outlined in land management plans. 

While the Forest Service achieved fuel reduction planned results for all acres treated in FY 2009 to 

restore fire-adapted ecosystems, the number of acres moved toward and maintained in desired conditions 

was below the planned result. A variety of factors influenced the ability to meet these goals, including 

weather, resource availability, and the number of treatments required. The agency continued to target 

more strategic acres for treatment, many of which were in the more costly WUI. The Forest Service 

achieved the annual results planned for the measure “percentage of acres treated in the Wildland Urban 

Interface that have been identified in Community Wildfire Protection Plans”. As of FY 2009, the agency 

has awarded a total of $24 million dollars to 78 grant recipients in 19 states. The grants program 

contributed to at least one million tons of green biomass used from NFS lands in FY 2009.

Natural processes, such as long-term drought and the severity of the fire season, as well as resource 

availability, affected the “acres treated to restore fire-adapted ecosystems” measure, resulting in 

fluctuations in annual performance and trend. While the agency continues to meet “total acres treated” 

goals, it often takes multiple treatments to move an area toward desired conditions and it may take 

repeated entries over time to maintain an area in desired condition. In addition, numerous types of 

projects contributed toward achievement of treatment goals, not all of which were specifically designed to 

change fire regime condition class (the method currently used to calculate movement toward and 

maintenance in desired condition). For example, many treatments were designed to reduce risk to 

communities or sensitive watersheds. These types of treatments may not have changed condition class, 

though they achieved their hazard reduction goals. Lastly, the agency continues to increase its focus on 

treating more strategic acres, many of which were in the more costly WUI areas. All of these factors 

affected the agency’s ability to meet planned goals for moving and maintaining acres in desired 

conditions in FY 2009. 

Program Description 

Program Overview

The Hazardous Fuels program helps to restore forest landscape health and reduce wildfire risks while also 

facilitating a reliable and sustainable supply of woody biomass that can create domestic, renewable 

energy. The Hazardous Fuels biomass grant programs help rural communities to develop diverse natural 

resource-based economies centered on forest ecosystem restoration and renewable energy. The program 

reduces the quantity or changes the arrangement of living and dead hazardous fuels in forests, woodlands, 

shrublands, and grasslands through prescribed burning, mechanical treatments, and other methods, in 

order to create and maintain resilient and sustainable landscapes. These activities restore fire-adapted 

ecosystems and reduce the intensity, severity, or effects of wildland fire to within acceptable ecological 

parameters that are consistent with land management plan objectives. The fuels treatment program 

focuses on reducing the risks of wildland fire and long-term damage to resources and property. 

Forest Service research has shown that home ignitability usually is not effectively changed by vegetation 

modification outside of the WUI. Beginning in FY 2011, the Forest Service will focus fuel management 

activities to mitigate hazards and enhance the ability to control fires in the wildland/urban interface 

(WUI).Hazardous fuels reduction treatments have dramatically altered problem fire behavior and enabled 

wildland firefighters to suppress wildfires more safely and cost-effectively. Many successful wildland 

firefighting operations can be attributed to an active hazardous fuels reduction program.

The LANDFIRE system continues to be an important program for the Hazardous Fuels program. This 

ongoing multi-partner program produces a consistent and comprehensive national vegetation and fuel 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-15

map covering all ownerships in the United States. LANDFIRE mapping was completed for the entire 

United States in 2009. LANDFIRE is now working on “Refresh”, a nation-wide effort to update and 

improve the initial mapping. LANDFIRE products help land managers prioritize areas for hazardous fuel 

reduction and ecological restoration, and are routinely used to support wildland fire suppression 

decisions. Specifically, they support HFPAS, Fire Program Analysis, the Wildland Fire Decision Support 

System (WFDSS), and the State and Private Forestry Redesign analysis tool. They also feed directly into 

the Southern and Western States Wildfire Risk Assessments. During FY 2010, the program will 

transition into a lower cost operation and maintenance mode.

Allocation and Integration

In 2011, the Forest Service will modify the Hazardous Fuels Prioritization and Allocation System 

(HFPAS) to reflect program priorities, including WUI. The agency will establish in the next three months 

a clear and accountable method for allocating the $349 million in funds to high priority fuels treatments, 

and will use it to fund the highest priority projects nationally. The Forest Service will prioritize the 

allocation of its funding for hazardous fuels treatments, and will use it to fund the highest priority projects 

nationally. Forest Service will prioritize the allocation of its funding for hazardous fuels treatments to 

communities that have identified acres to be treated in Community Wildfire Protection Plans and have 

made an investment in implementing local solutions to protection against wildland fire.

Partnerships

In addition to the integrated efforts within the Forest Service, the hazardous fuels reduction program 

works with outside partners to address the wildland fire threats on other Federal, State, and private lands. 

The agency makes efficient use of its authorities to conduct fuel treatments on adjacent non-Federal lands, 

partner with local communities in the development of CWPPs, coordinate fuel treatment programs with 

Department of the Interior agencies, and conduct treatments on NFS lands in cooperation with nongovernmental organizations.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-16

Budget Line Item Fire Operations – Other

Rehabilitation and Restoration

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

NFP Rehabilitation & Restoration

Annual Appropriations $11,500 $11,600 $35 -$2,600 $9,035 -22%

NFP Rehabilitation & Restoration Total $11,500 $11,600 $35 -$2,600 $9,035 -22%

Annual Appropriation FTEs 44 43 32

Total Full-Time Equivalents (FTEs) 44 43 32

FY 2011 Program Changes

The FY 2011 budget request for Rehabilitation and Restoration is $9,035,000, reflecting a program level 

decrease of $2,600,000 from FY 2010. Emphasis continues to be on the reestablishment of native 

vegetation on National Forest System (NFS) lands impacted by wildfire. High priority is placed on 

establishment of plant species with broad-range adaptability, or which have been identified as suitable for 

facilitating adaptation of ecosystems in response to the effects of climate change or other environmental 

factors. Program benefits include reestablishment of native plant species, development of native plant 

material sources for use in future rehabilitation and restoration efforts, prevention of erosion, watershed 

stabilization, wildlife and fisheries habitat recovery, and reducing or eliminating the establishment of 

exotic or invasive plant species.

Past Performance

In FY 2009, Rehabilitation and Restoration projects treated over 78,000 acres. Accomplishments include 

10,191 acres of forest vegetation establishment and improvement; 5,130 acres of soil and watershed 

resource improvement; 5,078 acres of invasive species treatment, 1,204 acres of terrestrial habitat 

restoration; and 52,894 acres of range vegetation restoration. In addition, 10.5 miles of stream habitat, 5 

miles of property boundary markers, and 5 miles of trail were restored. Other accomplishments include 

the development of native plant materials projects in every region, and restoration of numerous range 

structures.

Program Description

Program Overview

This program is above and beyond Burned Area Emergency Rehabilitation (BAER), which is funded 

through Wildland Fire Suppression, and addresses only the very basic immediate need issues such as soil 

stabilization. The Rehabilitation and Restoration program restores NFS forests and rangelands impacted 

by wildfire, addressing post-BAER needs on lands unlikely to recover naturally from wildland fire 

damage. Projects focus on restoring watershed function, including protection of soil, water resources, 

biological communities, and prevention of invasive species. Rehabilitation projects consist of planning, 

implementing, and monitoring for up to three years, and may include reforestation; watershed restoration; 

treatment of invasive species; terrestrial and aquatic habitat restoration; stabilization of roads, drainage 

systems, and trails; and rehabilitation of heritage resource sites, developed recreation facilities, range 

improvements, and other impacted facilities. For a full analysis of burned area rehabilitation needs,

please see the Special Exhibit in Chapter 16.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-17

Allocation and Integration

Rehabilitation funds are distributed to regions based on the percentage of severely burned lands in each 

region during the previous five years, and native plant materials funds are distributed based on a 

competitive selection of projects submitted by regions. Since priority fire restoration needs typically 

exceed available Rehabilitation and Restoration funds, additional needs are prioritized along with other 

program work to ensure that the highest priority needs are met using available National Forest System and 

Capital Improvement and Maintenance funding.

Partnerships

A portion of Rehabilitation and Restoration program funding is matched with money from the non-profit 

organization American Forests for procurement of both shrub and tree seedlings, and to cover associated 

activities used in post-fire reforestation projects necessary for the establishment of forest vegetation.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-18

Budget Line Item Fire Operations – Other

Research and Development

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

NFP Research & Development

Annual Appropriations $23,917 $23,917 $143 $0 $24,060 0%

NFP Research & Development Total $23,917 $23,917 $143 $0 $24,060 0%

Annual Appropriation FTEs 129 129 129

Total Full-Time Equivalents (FTEs) 129 129 129

FY 2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY 2009 

Actual

FY 2010 

Target

FY 2011 

Target

NFP Research & Development

Customer satisfaction index score for R&D 72 72 72 75 75 75

The FY 2011 President’s Budget proposes $24,060,000 for Research and Development (R&D) in this 

appropriation, which is level program funding with FY 2010. Funds will continue to maintain current 

levels of support for development and delivery of knowledge and technologies. Research addressing the 

effects and effectiveness of hazardous fuels treatments, biomass use, and other activities intended to 

ensure the health and sustainability of fire-impacted forest and rangeland systems will continue to be a 

priority.

FY 2011 Program Changes

Past Performance

Development, testing and implementation of the WFDSS (Wildland Fire Decisions Support System) 

continued in FY 2009. The system was broadly deployed within the US Forest Service and was used to 

varying degrees by other Federal land management agencies and 17 States. Overall, the WFDSS was 

deployed on over 6,500 wildland fires. Included within the system is access to state of the art fire spread 

predictions and FsPro (Fire Spread Probability), the ability to perform Rapid Assessment of Values at 

Risk (RAVAR), and a tool to benchmark expenditures on individual large fires with a stratified cost 

index.

Our understanding of the interaction of communities with wildland fires was enhanced in FY 2009 

through research at home in the USA and through collaborative work with Australian scientists, as 

Australia experienced a tragic fire year. Knowledge gained through these collaborative efforts informs 

managers and fire safety officials as they evaluate and implement public safety measures.

Basic research conducted by agency scientists and cooperators from Federal institutions and universities 

has increased the knowledge of the fundamentals of fire behavior. We expect this knowledge will lead to 

better predictive models that estimate fire spread and effects. 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-19

Program Description

Overview

The R&D program conducts research to support management of fire-affected ecosystems, to sustain forest 

health, and to reduce the risk of damaging wildland fires in the context of changing social and physical 

environments. The R&D program is managed under a strategic plan that outlines five portfolio areas: 

Core Fire Science, Ecological and Environmental Fire Science, Social Fire Science, Integrated Fire and 

Fuels Management Research, and Science Application. These Portfolios are designed to focus activities 

on the most important needs for science-based tools and information over the next 10 years. 

New knowledge and technology improves on-the-ground operations by providing better risk assessments 

to support fire season planning and appropriate management response; evaluating the effects of fuel 

treatments restoration activities, and post-fire emergency treatments; making up-to-date research 

information more readily accessible to planners and policy makers; and providing new information and 

tools integrating social and economic considerations into fire and fuel management.

R&D funds support resources needed to maintain a fire research program that is focused on the changing 

needs of users in the fire and land management communities. R&D programs are coordinated with other 

research funding and the Joint Fire Science Program to provide complementary efforts that address 

current and future needs.

The WFDSS was fully implemented by the Forest Service in FY 2009. In FY 2010, the system will 

undergo further development and enhancement, including integrating additional predictive capabilities. 

Allocation and Integration

A Wildland Fire Strategic Program Area (SPA) team and Portfolio teams evaluate and recommend 

allocations of R&D funds annually. In FY 2010 allocations will address recommendations from a 

Wildland Fire R&D external peer review completed in FY 2007. The role of the wildland fire SPA and 

Portfolio teams is to enhance integration and collaboration across stations.

Partnerships

Partnerships with users and other research organizations are a fundamental component of Forest Service 

fire research. These partnerships include Federal agencies, such as the Department of the Interior, 

National Air and Space Administration, Department of Defense, Department of Energy, National Institute 

of Standards and Technology, Natural Resource Conservation Service, and National Oceanic and 

Atmospheric Administration; a number of national forests; 75 U.S. colleges and universities; nongovernmental organizations such as the Nature Conservancy; State and local governments; industry 

partners; and international organizations.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-20

Budget Line Item Fire Operations – Other

Joint Fire Science Program

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Joint Fire Science Program

Annual Appropriations $8,000 $8,000 $9 $0 $8,009 0%

Joint Fire Science Program Total $8,000 $8,000 $9 $0 $8,009 0%

Annual Appropriation FTEs 8 8 8

Total Full-Time Equivalents (FTEs) 8 8 8

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $8,009,000 for the Joint Fire Science Program (JFSP), which

is no change from FY 2010. The JFSP will continue to produce important technical and scientific 

information that is needed to support the large national effort concerning hazardous fuels, fire 

management, and fire-related restoration. Forest Service Research and Development will continue to 

work jointly with the Department of the Interior in managing the program and setting priorities. 

Past Performance

At the beginning of FY 2009, the Joint Fire Science Program had 183 active projects, 30 of which were 

completed in FY 2009. In addition, 53 new projects were initiated based on proposals funded in FY 

2009. Areas in which awards were made in FY 2009 include fuel treatment effectiveness duration; fire, 

fish, and aquatic organisms; smoke management; assessment of the impacts of differing fire responses; 

insects, windstorms, and fire; predicting fire severity; fuel treatment impacts on threatened and 

endangered wildlife; fire prevention effectiveness; and longer-term fire effects. In addition, the Program 

awarded nine grants to support planning for a regional fire science delivery network. Proposals based on 

this planning will be considered in FY 2010. 

Program Description

Program Overview

JFSP is an interagency fire research and development partnership between the Departments of Interior 

and Agriculture. JFSP contributes to sound decision-making and project implementation through credible 

research tailored to the needs of fire and fuel managers. Research projects complement and build on other 

Federal research programs, such as those carried out by the Forest Service, the U.S. Geological Survey, 

and other research partners. Synthesis of research findings and targeted delivery to managers are essential 

components of the program. Land managers regularly use results from JFSP projects to plan and 

implement fuels treatments, support fire management decisions, restore lands affected by fire, and meet 

regulatory requirements. More information can be found at http://www.firescience.gov/.

In FY 2011, the program will develop topic areas with input from fire managers and solicit proposals in 

those areas. The scope of the topics and the number of awards will be dependent on the available funds. 

The program will continue focused work in the following areas: smoke management, fuel treatment 

effectiveness, and software systems for fuel management. In addition the program will implement actions 

in response to a program review conducted in FY 2009.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-21

Allocation and Integration

Funding priorities and policies are set by the JFSP governing board with representatives from the 

Department of the Interior and the U.S. Forest Service. Proposals are accepted for topics determined 

annually by the governing board. Allocations are determined by the board following a competitive peer 

review of submitted proposals. The reviews are conducted by land managers, technical specialists, and 

scientists, resulting in approximately 20 percent of research proposals receiving funding. 

Partnerships

JFSP is a partnership-based program. The governing board has representatives from the Forest Service 

and five Department of the Interior bureaus. The program office is staffed with personnel from both 

Department of the Interior and the Forest Service. JFSP collaborates with other governmental and nongovernmental entities, as well as more than 90 colleges and universities. In all, JFSP has engaged nearly 

200 organizations in its research.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-22

Budget Line Item Fire Operations - Other

Forest Health Management - Federal Lands

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

NFP Forest Health Management - Federal Lands

Annual Appropriations $17,252 $20,752 $2 -$6,312 $14,442 -30%

NFP Forest Health Management - Federal Lands Total $17,252 $20,752 $2 -$6,312 $14,442 -30%

Annual Appropriation FTEs 94 94 94

Total Full-Time Equivalents (FTEs) 94 94 94

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

NFP Forest Health Management - Federal Lands

Federal acres treated under NFP - Invasives 1,588 1,602 190 9,935 6,000 6,000

Federal acres treated under NFP - Native pests 39,668 21,146 20,028 39,781 26,097 19,037

FY 2011 Program Changes

The FY 2011 request is $14,442,000 for Forest Health Management–Federal Lands, a program decrease

of $6,312,000 below FY 2010. Funds are used to conduct forest insect and disease surveys, to provide 

technical assistance; and to conduct forest insect and disease prevention, suppression, and restoration 

projects on Federal lands, specifically those at risk to wildland fire or those recently burned. 

The request includes funding to focus treatments primarily to prevent and suppress bark beetles in priority 

fire-prone areas on NFS lands, other Federal lands, and tribal lands in western and southern States. The 

program will continue to protect critical forest ecosystems from invasive species such as the white pine 

blister rust, sudden oak death, and Port-Orford-cedar root disease. The request includes funding to 

provide survey assistance and technical assistance, which will provide information to Federal land 

managers on where pests are currently expected to cause damage, and potential damage mitigation actions

that can be taken. The request continues funding for the Western Threat Assessment Center to provide 

information on how multiple threats interact with pests, especially the effects of climate change. 

(Funding to continue similar activities at the Eastern Threat Assessment Center is included in the request 

for the Forest Health Management-Federal Lands program within the State and Private Forestry 

appropriation.)

Past Performance

In FY 2009, the Forest Service treated native pests on 39,781 acres and invasive species on 9,935 acres. 

Priority treatments for native pests focused on western bark beetles in highest priority large-scale 

watersheds. 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-23

Program Overview

Program Description

The Forest Health Management–Federal Lands program, funded through the Wildland Fire Management 

appropriation, monitors, assesses, and mitigates forest health conditions on National Forest System (NFS)

lands at high risk to wildland fires, including communities in the wildland-urban interface (WUI), and in 

previously burned areas. Funds are allocated to field units to conduct pest surveys; provide technical 

assistance; and to conduct prevention, suppression, and restoration projects. These investments provide 

for detection, evaluation, prevention, and suppression of forest insects and diseases on forestlands. 

Identifying priority treatment acres reduces the potential for new pest outbreaks. Treatments protect 

priority acres from damaging insects and disease, reduce the risks of mortality from wildland fire, protect 

highly valued sites, and prevent future outbreaks by increasing the resilience of treated areas. 

Allocation and Integration

Annual priorities for mitigating the risk of future 

outbreaks are based on information from the National 

Insect and Disease Risk Map (NIDRM), and current 

aerial and ground pest surveys. Prevention and 

suppression programs for major pests, such as the 

western bark beetle, are directly related to the 

significance of the pests, areas at risk or currently 

experiencing pest outbreaks, and the availability of costeffective treatment technologies. 

The spatial placement and sequencing of treatments on NFS lands are planned and coordinated with other 

Forest Service vegetation management program areas, such as hazardous fuels reduction and forest 

management through the “Sustainable Landscape Management” Board of Directors, a group of Directors 

from State and Private Forestry (Forest Health Protection, and Fire and Aviation Management), Research 

and Development (Forest Management Sciences), and National Forest System (Forest Management, 

Range Management, and Watershed, Fish, Wildlife, Air, and Rare Plants), to optimize on-the-ground 

accomplishments that improve the overall health of forest lands across the landscape in an all-lands 

approach.

Partnerships

This program funds the detection, evaluation, and suppression of forest insect and disease pests on NFS 

lands. Where proposed treatment locations are adjacent to non-Federal lands or lands managed by the 

Department of the Interior and Department of Defense, treatment scheduling is coordinated to optimize 

improvements to forest health across landownership boundaries.

Bark Beetle Prevention & Suppression

In 2009, bark beetle prevention and 

suppression treatments were implemented on 

46,000 acres. Of the total, 32,835 acres were 

treated on high priority National Forest System 

and other Federal lands across the West to help 

prevent future infestations, improve forest 

health, and reduce the threat of wildland fires 

in the WUI.

 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-24

Budget Line Item Fire Operations - Other

Forest Health Management – Cooperative Lands

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

NFP Forest Health Management - Cooperative Lands

Annual Appropriations $9,928 $11,428 $27 -$4,428 $7,027 -39%

NFP Forest Health Management - Cooperative Lands Tot $9,928 $11,428 $27 -$4,428 $7,027 -39%

Annual Appropriation FTEs 24 24 24

Total Full-Time Equivalents (FTEs) 24 24 24

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

NFP Forest Health Management - Cooperative Lands

Acres treated on cooperative lands under NFP - 

Invasives 192,850 158,234 120,732 117,705 117,411 70,880

Acres treated on cooperative lands under NFP - 

Native pests 8,441 12,456 782 4,684 2,438 3,061

FY 2011 Program Changes

The FY 2011 request is $7,027,000 for Forest Health Management–Cooperative Lands, a decrease of 

$4,428,000 from FY 2010. Funds are used to monitor forest health on State and private lands; and to 

conduct forest insect and disease prevention, suppression, and restoration projects on Cooperative lands,

specifically those at risk to wildland fire or those recently burned. 

The request includes funding to prevent and suppress bark beetles in priority fire-prone areas on 

Cooperative lands in western States. The program will continue to protect critical forest ecosystems from 

invasive species such as the white pine blister rust, sudden oak death, and Port-Orford-cedar root disease. 

The request includes funding to provide survey and technical assistance, which will provide information 

to land managers on where pests are currently expected to cause damage, and potential damage mitigation 

actions that can be taken. 

Past Performance

In FY 2009, the Forest Service treated native pests on 4,684 acres and invasive species on 117,705 acres. 

Priority treatments for invasive species focused on invasive plants. Priority treatments for native pests 

focused on western bark beetles in highest priority large-scale watersheds.

Targets are based on the previous year’s unit costs, current year funding, and the changing dynamic of 

risk to forests. Accomplishments reflect projects selected and changes in pest conditions, treatment 

methods, and unit costs. 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-25

Program Description

Program Overview

The Forest Health Management – Cooperative 

Lands program, funded through the Wildland 

Fire Management appropriation, provides 

technical and financial assistance to States and 

territories to monitor, assess, and mitigate forest 

health conditions on non-Federal lands at high 

risk to wildland fires, including communities in 

the wildland-urban interface, and in previously 

burned areas. Funds are allocated to field units 

to conduct pest surveys; provide technical 

assistance; and to conduct prevention, 

suppression, and restoration projects. These 

investments provide for detection, evaluation, 

prevention, and suppression of forest insects, 

diseases, and invasive plants on forestlands.

Identifying and treating priority acres provides 

protection from damaging insects and disease; 

reduces the risk of mortality and wildland fire; protects highly valued sites; and prevents future outbreaks 

by increasing the resiliency of treated areas which leads to healthy forests across the landscape.

Allocation and Integration

Allocations are based upon level of risk as defined by the National Insect and Disease Risk Map

(NIDRM) (available on–line at http://www.fs.fed.us/foresthealth/technology/nidrm; current pest survey 

results; the probability of successful treatment; and the capability to conduct necessary environmental 

compliance. Risk from mortality (at least 25 percent tree mortality in the next 15 years) is highest for 

mountain pine beetle, oak decline, and southern pine beetle. Prevention and suppression programs for 

major pests such as western bark beetles are directly related to the significance of these pests, areas at 

risk, current pest condition surveys, and the availability of cost-effective treatment technologies. Invasive 

Plants are not part of NIDRM by definition, but where other sources indicate there is a large risk to 

forestlands from invasive plants, the funding from this program is commensurate with this risk and role of 

the Federal government in management.

The Forest Service uses risk maps in selection of insect and disease project locations. The actual 

placements for treatments are decided based upon local level priorities including high-value stands, 

wildland-urban interface areas, municipal water supply areas, recreational sites, and administrative sites.

Partnerships

When proposed treatment locations are adjacent to NFS lands or other Federal lands, treatment 

scheduling is coordinated to optimize improvements to forest health across landownership boundaries. 

The cost of suppression and prevention projects is shared with States and other non-Federal partners on a 

1:1 basis.

Most Significant Contributing Agents to the Risk Map

Agent Name 

Basal Area 

Losses

(millions 

of square 

feet)

Mountain Pine Beetle 750.5

Red Oak Decline 657.9

Southern Pine Beetle 589.2

Root Diseases - All 518.5

Gypsy Moth 448

Pine Engraver Beetle (Ips) 345.4

Fir Engraver Beetle 270.2

Douglas-Fir Beetle 242.8

Spruce Beetle 195.2

Hardwood Decline 181.2

Western Pine Beetle 136
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-26

Budget Line Item Fire Operations – Other

State Fire Assistance

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

NFP State Fire Assistance

Annual Appropriations $55,000 $71,250 $104 -$21,250 $50,104 -30%

NFP State Fire Assistance Total $55,000 $71,250 $104 -$21,250 $50,104 -30%

Annual Appropriation FTEs 2 2 2

Total Full-Time Equivalents (FTEs) 2 2 2

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

NFP State Fire Assistance

Communities at risk from wildfire assisted - NFP 

(number) 7,150 29,064 17,353 13,154 10,500 8,200

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $50,104,000 for the State Fire Assistance (SFA) program, a 

decrease of $21,250,000 from the FY 2010 level. These funds will support 8,200 communities. SFA 

funds assist communities with hazardous fuel treatments, capacity building, fire prevention education and 

preparedness activities to help ensure States and local governments continue to reduce fire risk in their 

communities, and to support fire fighting capacity within each State. Key program benefits include 

enhancing State and local fire protection organizations’ ability to be effective first responders in wildland 

fire initial attack operations, which is critical to reduce the risk of large, costly wildfires. The Forest 

Service will work with the State Foresters to establish guidelines to set planning standards that are to be 

met as a condition of award for community grant recipients.

Projects are planned, completed, and entered into the performance database by each State and are not 

under the direct control of the Forest Service. However, to help ensure focus on the highest priority 

projects, the agency issues program direction encouraging the States to focus the funds on areas covered 

by Community Wildfire Protection Plans or other collaboratively developed hazard mitigation plans. 

Depending on the State’s priorities and fluctuations in fire danger, the number of projects and 

communities assisted may vary significantly from year to year. 

Past Performance

In FY 2009, SFA funding assisted 13,154 communities through a variety of different activities. 

Additional SFA accomplishments are reported under the State and Private Forestry SFA budget line item. 

Accomplishments achieved with National Fire Plan funding include State funding for the training of over 

25,000 firefighters. Over 10,000 prevention and education programs were conducted, benefiting over 

5,500 communities. Approximately $4.7 million was invested in the purchase, maintenance, and 

rehabilitation of needed firefighting equipment for State agencies. Nearly $7 million of funding was 

provided for preparedness activities such as personnel and facilities maintenance, and over $4.8 million 

was provided for suppression operations and support, such as dispatch centers. Additionally, assistance 

was provided to over 3,200 communities in the form of risk assessments and fire management planning 

projects. SFA provided $40 million of funding for hazardous fuels treatments, benefiting over 2,200 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-27

communities in the Wildland-Urban Interface (WUI). This funding led directly to the treatment of over 

176,000 acres of hazardous fuels, and leveraged the treatment of another 335,000 acres. Actual 

accomplishment figures fluctuate from year to year depending on the types and cost of individual projects 

the State Foresters choose to implement. For example, if some States’ priority projects are relatively 

expensive then they will accomplish fewer projects, and therefore assist fewer overall communities. The 

Forest Service strongly encourages the States to focus their efforts on high priority projects and 

demonstrate their performance in a transparent manner. 

Program Description 

Program Overview

The SFA program provides matching financial assistance through partnership agreements with State 

foresters for all fire management activities including training, planning, hazardous fuel treatments, and 

purchase and maintenance of equipment. This program emphasizes fire planning and hazardous fuel 

mitigation near communities at risk of catastrophic wildfire. Funding helps Federal, State, and local 

agencies deliver a uniform and coordinated suppression response to wildfire. Support enables State and 

local fire protection organizations to be effective first responders during initial attack on wildland fires, 

significantly decreasing overall suppression costs. SFA fire prevention education programs, through 

building capacity to provide effective initial attack response and hazardous fuel reduction projects, are 

also an imperative and integral part of the overall Wildland Fire Management program response to 

climate change.

The Forest Service is now also tracking the number of Communities at Risk identified by the State 

Foresters as being at “reduced risk”. These funds also support the “Firewise” program, a community 

based educational program designed to provide information on defensible space and community wildfire 

risk reduction, and the Smokey Bear fire prevention program.

Allocation and Integration

These SFA program activities are funded through two different budget line items, one as part of State and 

Private Forestry and the other as part of Wildland Fire Management, Fire Operations - Other. Funding is 

distributed to the State Foresters to address critical preparedness needs and hazard mitigation in the WUI 

near communities at risk. A percentage of funds are distributed to the States consistent with the State and 

Private Forestry State Fire Assistance program. Remaining funds are allocated on a competitive basis to 

States for planning and implementation of hazard mitigation projects.

Funds are allocated based on the vegetative condition class and communities at risk within three 

geographic regions of the country so that the Western States receive 60 percent of total funds, the 

Southern States receive 25 percent, and the Northeastern States receive 15 percent. Additional 

requirements apply within these regional allocations: 35 percent of the funds received by Western States 

must be used for preparedness and 65 percent for hazard mitigation, while not less than 50 percent of 

funds received by the Southern and Northeastern States must be used for preparedness. Funds are 

distributed in the form of grants to the States, and are reallocated by the States to best address their needs, 

within funding guidelines.

Partnerships

This program complements the State Fire Assistance program funded through the State and Private 

Forestry appropriation, significantly expanding benefits to the State Foresters. 
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-28

Budget Line Item Fire Operations – Other

Volunteer Fire Assistance

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

NFP Volunteer Fire Assistance

Annual Appropriations $9,000 $9,000 $0 -$2,000 $7,000 -22%

NFP Volunteer Fire Assistance Total $9,000 $9,000 $0 -$2,000 $7,000 -22%

Annual Appropriation FTEs 0 0 0

Total Full-Time Equivalents (FTEs) 0 0 0

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

NFP Volunteer Fire Assistance

Volunteer fire departments assisted - NFP (number) 4,058 5,789 8,386 6,382 3,900 3,000

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $7,000,000 for the Volunteer Fire Assistance (VFA) program, 

a decrease of $2,000,000 from the FY 2010 program level. This amount will provide matching financial 

assistance to about 3,000 rural communities of less than 10,000 people to build and maintain fire 

suppression capacity. However, this program is managed by the States through a competitive grant 

process which seeks to provide funding to the areas of highest risk and greatest need. Therefore, the 

Forest Service can only estimate projected accomplishments based on previous year’s performance. The 

Forest Service will work with the State Foresters to establish guidelines to set planning standards that are 

to be met as a condition of award for community grant recipients.

Past Performance

In FY 2009 the Forest Service provided VFA funding to 

volunteer fire departments in 6,382 communities. Funding 

helped with the training of over 14,400 firefighters, the 

organization or expansion of over 300 fire departments, and 

the purchase, rehabilitation, and maintenance of over $6.3 

million dollars of equipment. The Forest Service strongly 

encourages the States to focus their efforts on high priority 

projects and demonstrate their performance in a transparent 

manner.

Volunteer Fire Departments

In 2009, the VFA program supported 

the organization and expansion of over 

300 volunteer fire departments. This 

was the second year of nearly doubling 

the number of fire departments 

organized or expanded.
FY 2011Budget Justification USDA Forest Service 

Wildland Fire Management 11-29

Program Description 

Program Overview

This program is delivered by the State Foresters and supports local fire suppression efforts by providing 

grants for equipment, training programs, and technical assistance in organizing or expanding fire 

departments. The program targets volunteer fire departments that protect communities of less than 10,000 

inhabitants from wildland fire. These fire departments provide initial attack on many rural wildland fires 

throughout the Nation. Grants are matched dollar-for-dollar by the recipients to leverage the value of 

Federal investment. Program funding helps Federal, State, and local agencies deliver a uniform and 

coordinated suppression response to wildfire by training, equipping, and organizing volunteer fire 

departments. VFA fire prevention education programs, through building capacity to provide effective 

initial attack response and hazardous fuel reduction projects, are also an imperative and integral part of 

the overall Wildland Fire Management program response to climate change.

Allocation and Integration

Funds are allocated on the basis of risk from catastrophic fires to communities in the WUI, the number of 

acres to be protected, and the number of volunteer fire departments serving qualifying communities. 

Forest Service Regions, the Northeastern Area, and the International Institute of Tropical Forestry receive 

a fixed percent which they allocate to States and Territories. The Forest Service will establish guidelines 

to set standards that are to be met as a condition of award for community grant recipients.

Partnerships

The program supports and complements the VFA program funded through the State and Private Forestry 

appropriation, further supporting the fire suppression needs of small communities.
FY 2011Budget Justification USDA Forest Service 

FLAME Wildfire Suppression Reserve Fund 12-1

Appropriation FLAME Wildfire Suppression Reserve Fund

Description

The FY 2011 President’s Budget proposes funding the FLAME Act account at $291,000,000 million in a 

separate Treasury account. These funds will be available to the Secretary of Agriculture to be transferred 

into the Suppression account when the Suppression account is nearly exhausted and/or certain objective 

criteria are met. As fires escape initial response, and as Type 1 or Type 2 Incident Management teams are 

assigned to those escaped incidents, a risk assessment and a formal risk decision will be made, which will 

be part of the declaration for a request to the Secretary of Agriculture to move funds from the FLAME 

Act account into the Suppression account.

The fund will help address the challenges of budgeting for fire suppression and enable the agency to 

respond effectively during highly variable fire seasons. The President’s Budget also proposes program 

reforms such as the use of strategic and operational protocols and improved oversight, and the use of a 

risk management framework that ensures that fire management resources are appropriately focused. 

Through this combination of the FLAME Act account, Contingency Reserve, and these program 

improvements, the President’s Budget ensures that fire management resources are sufficient to allow the 

continuance of other critical Forest Service activities by minimizing the potential need to transfer funds 

from other Forest Service accounts to Suppression.

Background

The FLAME ACT of 2009 was authorized under P.L. 111-88, as part of the Department of the Interior, 

Environment, and Related Agencies Appropriations Act, 2010. 

Although the total number of fires on National Forest System lands has decreased in recent years, fires 

have become larger and more difficult to control due to a variety of factors, including climate change, 

persistent drought, accumulation of hazardous fuels, and expansion and increased complexity of the 

Wildland-Urban Interface (WUI). As fire seasons have been extended, agency deployment of resources 

has increased and annual fire suppression expenditures have routinely exceeded the ten-year average. 

When this occurs, the Forest Service has used its authority to transfer funds from other non-fire accounts 

into Fire Suppression. Since 2002, the Forest Service has transferred over $2 billion from other accounts 

to cover additional suppression costs. These transfers have resulted in significant disruptions in the 

agency’s ability to deliver its program of work, even when the transferred funds are later repaid through 

supplemental appropriations. (For more information on Fire Transfers see the Special Exhibit Section)

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

FLAME Wildfire Suppression Reserve Fund

Annual Appropriations $0 $413,000 -$122,000 $291,000 -30%

FLAME Wildfire Suppression Reserve Fund Total $0 $413,000 -$122,000 $291,000 -30%

Annual Appropriation FTEs 0 0 0

Total Full-Time Equivalents (FTEs) 0 0 0
FY 2011Budget Justification USDA Forest Service 

FLAME Wildfire Suppression Reserve Fund 12-2

Protocols and Objective Criteria

The FLAME Act account will function as a transfer account to accommodate those large fires which 

historically have resulted in the greatest expenditure of Suppression funds. Specific protocols and 

objective criteria must be met in order to meet FLAME Act fund requirements. 

The protocols and criteria will also include complexity of wildfire incidents, such as assignment of Type 

1 or Type 2 Incident Management Teams, or when the regular Suppression account is nearly exhausted. 

Both of these instances require a declaration to the Secretary who would then request transfer of funds 

from the FLAME Act account into the Suppression account. In addition, critical changes that the agency 

is moving forward in FY 2011 will be an integral component of the protocols and criteria. These changes 

include:

 Development and application of performance metrics associated with resource applications and 

their effectiveness on large fires and establishing fiscal boundaries for suppression expenditures 

with active oversight and monitoring protocols;

 Development and deployment of a protocol-based resource allocation system/model in order for 

geographic area and multi-agency coordination centers to make risk informed optimal resource 

allocation decisions during periods of likely and actual high fire activity; 

 Implementation of a national risk management framework for managing the inherent risks of 

wildland fires, including air and ground operations that classify all fires into different risk 

categories and associates mitigation measures commensurate with each category.

The development and implementation of risk management protocols for agency administrator decisions 

and incident command team operations includes specifications for integrating decision-making by policy 

officials in circumstances that vary from these protocols, particularly when risk to firefighters is increased 

or the applications of resources is likely to be ineffective. 

Two science-based metrics will be prototyped in FY 2010 through the Wildland Fire Decision Support 

System (WFDSS). The first, a forward looking “exposure index” metric will consider firefighter 

exposure relative to line building capability as compared to a fire probability contour, or perimeter, as 

defined by the Fire Spread Probability (FSPro) model. The second, a rearward looking “estimated cost” 

metric will compare actual suppression costs against historical costs for similar fires based on the 

potential fire size and cost defined by the FSPro model and stratified cost index (SCI), adjusted for risk by 

the level of structures at risk. 

This overall process requires and includes continuous engagement of agency executive level leadership, 

fire and aviation management leadership, and USDA policy officials. As the complexity and 

consequences of wildfire management and expenditure decisions escalates, so will the engagement of 

these entities resulting in shared leadership and risks.
FY 2011Budget Justification USDA Forest Service 

Presidential Wildland Fire Contingency Reserve 13-1

Appropriation Presidential Wildland Fire Contingency Reserve

Description

The FY 2011 President’s Budget proposes a discretionary contingent reserve of $282 million in a separate 

Treasury account that responsibly budgets for wildfires and ensures fire management resources are used 

in a cost-effective manner in high-priority areas where they will do the most good. These funds would be 

available to the Secretary of Agriculture subject to the issuance of a Presidential Finding when the 

suppression appropriation and FLAME Act fund, fully funded at the ten-year average, are exhausted and 

certain objective criteria are met. The fund would help address the challenges of budgeting for fire 

suppression and enable the agency respond effectively to wildfires. Coupled with program reforms such 

as strategic and operational protocols and improved oversight, and the use of a risk management 

framework that ensures that fire management resources are appropriately focused, the President’s Budget 

ensures that fire management resources are sufficient to allow the continuance of other critical Forest 

Service activities by minimizing the potential need to transfer funds from other Forest Service accounts to 

Suppression.

Background

Although the total number of fires on National Forest System lands has decreased in recent years, fires 

have become larger and more difficult to control due to a variety of factors, including climate change, 

persistent drought, accumulation of hazardous fuels, and expansion and increased complexity of the 

Wildland-Urban Interface (WUI). As fire seasons have been extended, agency deployment of resources 

has increased and annual fire suppression expenditures have routinely exceeded the ten-year average. 

When this occurs, the Forest Service has used its authority to transfer funds from other non-fire accounts 

into Fire Suppression. Since 2002, the Forest Service has transferred over $2 billion from other accounts 

to cover additional suppression costs. These transfers have resulted in significant disruptions in the 

agency’s ability to deliver its program of work, even when the transferred funds are later repaid through 

supplemental appropriations. 

Responsibly Budgeting for Fire

The President’s Budget recommends that the FY 2011 House and Senate budget resolutions include 

language providing for i) a budget cap adjustment of $282,000,000 for a contingent reserve for the US 

Department of Agriculture and $75,000,000 for the Department of the Interior, and ii) a separate Treasury 

Appropriation Fund Symbol (TAFS) for the contingent reserve that is assigned to the Secretary of 

Agriculture and to the Secretary of the Interior, as appropriate. 

The budget resolution language should also specify that the cap adjustment is available solely at the level 

requested, and i) is contingent upon anticipated exhaustion of the appropriated 10-year average within 30 

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

Pay & 

Other Cost 

Changes

Program 

Changes

FY 2011 

President's 

Budget

Percent of 

Program 

Change

Presidential Wildland Fire Contingency Reserve

Annual Appropriations $0 $0 $282,000 $282,000 0%

Presidential Wildland Fire Contingency Reserve Total $0 $0 $282,000 $282,000 0%

Annual Appropriation FTEs 0 0 0

Total Full-Time Equivalents (FTEs) 0 0 0
FY 2011Budget Justification USDA Forest Service 

Presidential Wildland Fire Contingency Reserve 13-2

days, and ii) would apply only to contingent reserve funds appropriated to the separate Treasury Symbol 

that is accessible only after issuance of a Presidential finding that confirms the agency has exhausted the 

appropriated 10-year average and details the existence of certain protocols and objective criteria. The 

Secretary would then request transfer of funds from the Contingency account into the Suppression 

account. 

Further, to ensure uninterrupted program operations, authority for the agency to transfer funds from nonfire accounts to maintain ongoing suppression operations would be continued subject to the 10-year 

average and contingent reserve being exhausted.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-1

Appropriation Permanent Appropriations

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Brush Disposal

New Budget Authority $7,868 $11,000 $11,385 $385

Program Level $11,637 $14,700 $14,700 $0

Full-Time Equivalents (FTEs) 94 105 105 0

Licensee Program

New Budget Authority $90 $86 $86 $0

Program Level $5 $33 $33 $0

Full-Time Equivalents (FTEs) 0 0 0 0

Restoration of Forest Lands & Improvements

New Budget Authority $45,027 $35,000 $35,000 $0

Program Level $10,085 $15,000 $15,000 $0

Full-Time Equivalents (FTEs) 61 75 70 -5

Federal Lands Recreation Enhancement Fund

New Budget Authority $66,477 $67,000 $67,500 $500

Program Level $102,194 $99,900 $67,700 -$32,200

Full-Time Equivalents (FTEs) 655 603 532 -71

Federal Land & Facility Enhancement Fund

New Budget Authority $8,768 $50,000 $25,000 -$25,000

Program Level $13,417 $40,850 $22,400 -$18,450

Full-Time Equivalents (FTEs) 21 32 25 -7

Timber Purchaser Election Road Construction

New Budget Authority $4,000 $4,000 $4,000 $0

Program Level $2,854 $2,000 $2,000 $0

Full-Time Equivalents (FTEs) 21 3 3 0

Timber Salvage Sales

New Budget Authority $23,867 $32,000 $23,000 -$9,000

Program Level $33,233 $34,200 $34,000 -$200

Full-Time Equivalents (FTEs) 300 301 296 -5

Stewardship Contracting

New Budget Authority $5,724 $4,500 $4,660 $160

Program Level $3,286 $6,590 $6,000 -$590

Full-Time Equivalents (FTEs) 0 0 0 0

Timber Sales Pipeline Restoration Fund

New Budget Authority $7,735 $7,000 $7,000 $0

Program Level $4,239 $8,000 $7,000 -$1,000

Full-Time Equivalents (FTEs) 35 53 47 -6

Forest Botanical Products

New Budget Authority $1,844 $2,250 $2,330 $80

Program Level $1,385 $1,830 $2,330 $500

Full-Time Equivalents (FTEs) 17 17 17 0

Roads & Trails (10 percent) Fund

New Budget Authority -$7,553 $11,200 $12,100 $900

Program Level $710 $1,500 $10,000 $8,500

Full-Time Equivalents (FTEs) 1 0 31 31
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-2

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Midewin National Tallgrass Prairie Rental Fee Fund

New Budget Authority $548 $1,100 $1,100 $0

Program Level $571 $800 $800 $0

Full-Time Equivalents (FTEs) 2 1 1 0

Midewin National Tallgrass Prairie Restoration Fund

New Budget Authority $0 $0 $0 $0

Program Level $0 $0 $0 $0

Full-Time Equivalents (FTEs) 0 0 0 0

Operation & Maintenance of Quarters

New Budget Authority $8,061 $9,000 $9,000 $0

Program Level $7,368 $8,300 $8,000 -$300

Full-Time Equivalents (FTEs) 28 27 27 0

Land Between the Lakes Management Fund

New Budget Authority $3,756 $4,300 $4,500 $200

Program Level $3,892 $4,100 $4,300 $200

Full-Time Equivalents (FTEs) 17 15 15 0

Valles Caldera Fund

New Budget Authority $651 $1,000 $1,000 $0

Program Level $593 $1,000 $1,000 $0

Full-Time Equivalents (FTEs) 0 0 0 0

Administration of Rights-of-Way & Other Land Uses

New Budget Authority $4,768 $6,900 $8,500 $1,600

Program Level $3,369 $7,418 $8,300 $882

Full-Time Equivalents (FTEs) 29 37 42 5

Payment to States Funds

New Budget Authority $182,513 $106,150 $104,605 -$1,545

Program Level $545,446 $496,270 $452,180 -$44,090

Full-Time Equivalents (FTEs) 70 60 85 25

Permanent Funds New Budget Authority $364,144 $352,486 $320,766 -$31,720

Permanent Funds Program Level $744,284 $742,491 $655,743 -$86,748

Permanent Funds Full-Time Equivalents (FTEs) 1,351 1,329 1,296 -33
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-3

Budget Line Item Brush Disposal

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Brush Disposal

New Budget Authority $7,868 $11,000 $11,385 $385

Program Level $11,637 $14,700 $14,700 $0

Full-Time Equivalents (FTEs) 94 105 105 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

The FY 2011 budget proposes $14,700,000 for the Brush Disposal program. The program level is the 

same program level as FY 2010 and is based on projected harvest levels through FY 2010. Funding will 

be used to treat an estimated 60,000 acres of woody debris resulting from timber harvesting on the 

national forests. 

Past Performance

In FY 2009, 74,669 acres were treated, or 36 percent more than were initially planned. Actual 

accomplishments were significantly above projected accomplishment levels in part due to the variability 

of treatment methods and associated costs on specific timber sale areas.

Authority

The Brush Disposal Act of August 11, 1916, as amended (16 U.S.C. 490) This Act authorizes the 

Secretary of Agriculture to require purchasers of national forest timber to deposit the estimated cost to 

dispose of brush and other debris resulting from their cutting operations.

Program Overview

This program provides for the disposal of unmerchantable brush and other debris resulting from 

timber harvest operations. Timber harvest activities create logging slash which, left untreated,

can increase the risk of fire, impair reforestation, contribute to the buildup of insect populations,

or damage stream channels. Depending upon the amount of logging debris created, as well as 

the relative fire hazard created, logging slash can be mechanically treated by scattering, chipping, 

or crushing down by logging equipment and allowed to decay. Slash can also be subjected to 

broadcast burning or collected into piles and burned during non-hazardous weather conditions.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-4

Timber sale operators can perform the required work, or they can request that the Forest Service complete 

this work by depositing funds to cover these costs. Brush disposal funding comes from deposits required 

of timber purchasers, and is used only on timber sale areas. 

Allocation and Integration

The allocation of brush disposal funds responds to each region’s assessment of budget authority required 

to accomplish necessary treatments to the extent funds are on deposit. 

Partnerships

None.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-5

Budget Line Item Licensee Programs (Smokey Bear and Woodsy Owl)

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Licensee Program

New Budget Authority $90 $86 $86 $0

Program Level $5 $33 $33 $0

Full-Time Equivalents (FTEs) 0 0 0 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

The budget includes $86,000 for the licensee programs, which is equal to the FY 2010 level. This 

program supports national initiatives, local programs, and products that help increase public awareness 

with regard to wildfire prevention (Smokey Bear) and maintenance of environmental quality (Woodsy 

Owl). There are no FTEs funded by this program. 

Authorities

Fees for the use of the Smokey Bear and Woodsy Owl characters by private enterprises are collected 

under regulations formulated by the Secretary of Agriculture. They are available to support: Smokey 

Bear: to further the nationwide forest fire prevention campaign (16 U.S.C. 580 p-2) (18 U.S.C. 711).

Woodsy Owl: to promote wise use of the environment and programs that foster maintenance and 

improvement of environmental quality (16 U.S.C. 580 p-1) (formerly classified as 31 U.S.C. 488a, 488b3, 488b-6) (18 U.S.C. 711a).

Program Description

The Smokey Bear program supports national initiatives, programs, and products that help increase public 

awareness in regard to wildfire prevention. The licensing program receives approximately $100,000 

yearly from royalties, of which 35 percent are paid to the licensee contractor for its services. A fire 

prevention specialist oversees the licensing contract. Smokey Bear royalties also support the National 

Smokey Bear Award program and the national fire prevention public service campaign. The Chief of the 

USDA Forest Service has discretionary authority to use money from royalties in special projects that 

support the Smokey Bear fire prevention message. 

The Woodsy Owl program supports national initiatives, programs, and products that help increase public 

awareness of activities and issues related to improvement and maintenance of environmental quality. 

This licensing program is overseen by the national symbols program manager on the Conservation 

Education staff. The Conservation Education program identifies funding for the Woodsy Owl 

conservation program initiative to develop products, to manage the licensing program, and to enhance 

partnerships. The licensing contractor receives 35 percent of the royalties reported. The focus of the 

Woodsy Owl licensing program is to collect royalties to develop a public service campaign to promote 

conservation of the environment. 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-6

Budget Line Item Restoration of Forest Lands and Improvements

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Restoration of Forest Lands & Improvements

New Budget Authority $45,027 $35,000 $35,000 $0

Program Level $10,085 $15,000 $15,000 $0

Full-Time Equivalents (FTEs) 61 75 70 -5

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

The budget includes $15,000,000 for the Restoration of Forest Lands and Improvements. This is the 

same program level as FY 2010. This program provides for the rehabilitation of forest resources or 

infrastructure that has been damaged due to negligence or contract non-performance of other parties. 

Restoration of Forest Lands and Improvements provides a funding mechanism to quickly bill, collect, and 

obligate funds necessary to restore damages to critical ecosystems and facilities so that repairs are not 

deferred or foregone.

Authorities

The Act of June 20, 1958 (16 U.S.C. 579c) ( P.L. 85-464, Sec. 7, June 20, 1958, 72 Stat. 217). This Act 

authorizes establishment of a fund for improvement, protection, or rehabilitation of lands under the 

administration of the Forest Service. This fund receives moneys from (a) a forfeiture of a bond or deposit 

by a permittee or timber purchaser for failure to complete performance of improvement, protection, or 

rehabilitation work required under the permit or timber sale contract or (b) the result of a judgment, 

compromise, or settlement of any claim, involving present or potential damage to lands or improvements. 

Funds are available until expended to cover the costs of performing the required work. Any funds 

received in excess of the amount expended in performing the work shall be transferred to miscellaneous 

receipts. 

Program Overview

This authority protects the interests of 

the Forest Service in a variety of 

situations. When work under a permit 

or timber sale contract is not completed 

by a permittee or timber purchaser, they

forfeit their bond or deposit. These 

funds then transfer to the Restoration of 

Forest Lands and Improvements fund, 

and the Forest Service performs the 

work itself.

Reforestation/TSI

Wildlife

Lands and Facilities

Noxious Weeds

Recreation and Trails

Range Watershed 

Improvements

Restoration of National Forest Lands and 

Improvements

FY 2009 Activities
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-7

This authority also protects the interests of the Forest Service from present or potential damage to lands or 

improvements due to the actions of another party. The authority provides the Forest Service with the 

ability to use funds from a judgment, compromise, or claim settlement to address those damages. 

Restoration of Forest Lands and Improvements funds are available until expended. Any monies received 

in excess of the amount expended in performing the appropriate work is transferred to miscellaneous 

receipts. Based on a Comptroller General's Decision (67 Comp. Gen. 276), collections may be used to 

cover the restoration costs paid from Forest Service appropriations if Forest Service appropriations were 

used to complete the required work before the collections were received. The proposed FY 2011 program 

funding level is based on field projections of anticipated work.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-8

Budget Line Item Federal Land Recreation Enhancement Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Federal Lands Recreation Enhancement Fund

New Budget Authority $66,477 $67,000 $67,500 $500

Program Level $102,194 $99,900 $67,700 -$32,200

Full-Time Equivalents (FTEs) 655 603 532 -71

FY 2011 Program Changes

The budget includes $67,700,000 for the Federal Lands Recreation Enhancement Fund, a decrease of 

$32,200,000 below FY 2010. Funds will be used to provide annual maintenance and repairs to recreation 

facilities, enhance visitor services such as interpretation and education, and provide for the presence of 

law enforcement and other uniformed employees in recreation areas. Priority for use of these funds will 

be to reduce deferred maintenance at high priority fee sites identified in Recreation Facility Analysis 

(RFA) master plans and to improve the condition of the facilities used by the recreating public. Through 

the use of these funds the Forest Service is able to operate and maintain many of its recreation facilities 

that might otherwise have been closed due to increasing costs. 

Past Performance

Program Levels in both FY 2009 and FY 2010 include actual and planned expenditures from the $93 

million in additional revenues transferred from the Land and Water Conservation Fund, in FY 2008, as 

authorized by Congress under the Federal Lands Recreation Enhancement Act. Of the amount 

transferred, approximately $57 million has been expended on 335 projects, with the additional benefit of 

reducing deferred maintenance by approximately $30 million. 

Authorities

Federal Lands Recreation Enhancement Act (16 U.S.C. 6806 and 6807) (P.L. 108-447, div. J, [title VIII, 

Sec. 807 and Sec. 808] Dec. 8, 2004, 118 Stat. 3388). This Act provides authority through December 

2014 to implement a fee program for certain recreation sites on Federal lands. Fees collected from users 

of recreation facilities are used to pay for on-the-ground operation, maintenance, and improvements of 

recreation sites and services to maintain and enhance recreation opportunities, visitor experiences, and 

related habitat. Funds are available until expended. The Act directs the creation of Recreation Resource 

Advisory Committees (RACs) to allow for public involvement on recreation fee programs.

Program Overview 

Approximately $67 million is collected annually and used to maintain and improve facilities and services 

for which the fees are collected. At least 80 percent of the fees collected are deposited in the Federal 

Lands Recreation Enhancement Fund and are spent on the area, site, or projects that directly relate to 

visitor enjoyment, access, and health and safety. Work activities include: annual operation and
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-9

Visitors at Mount Shasta

Approximately 6,000 to 

7,000 visitors climb 

Mount Shasta on the 

Shasta-Trinity National 

Forest each year. 

Revenues from recreation 

fees enable the Forest to

provide a ranger presence and crucial safety services, 

including over 900 climbing presentations to 

interested visitors, 300 avalanche clinics to potential 

climbers, and maintenance of a climbing and 

avalanche website that receives 85,000 hits per year. 

Recreation fees are crucial for providing a safe and 

enjoyable experience for climbers on Mt. Shasta. 

maintenance, interpretation, signage, wildlife habitat restoration, resource preservation, and law 

enforcement. A large amount of work in this program is executed through contracts. 

The Forest Service is the contracting agency for the National Recreation Reservation Service (NRRS), 

part of Recreation.gov, an e-government initiative. The Forest Service has entered into a four-year 

contract through FY 2010, with the option to extend through 2016, valued at $100 million to provide 

reservations for all reservable recreation facilities on public lands. 

Allocation and Integration

Recreation fees supplement discretionary appropriations such as National Forest System – Recreation, 

Heritage and Wilderness and Capital Improvement and Maintenance – Facilities and Trails budget line 

items. These revenues are an integral part of sustaining the agency’s recreation program. Outputs 

associated with this program are combined and reported under individual resource programs throughout 

the Forest Service appropriated accounts.

Partnerships

Recreation fees are used to match volunteer hours, 

grants, and other challenge cost share dollars to 

provide for the health and safety of visitors to 

national forest recreation areas and to restore 

ecosystem damage caused by recreation use.

The Forest Service has chartered five Recreation 

Resource Advisory Committees (RACs), which 

include the Southern, Eastern, and Pacific 

Northwest Regions, and the States of California 

and Colorado. In cooperation with the Bureau of 

Land Management (BLM), the agency participates 

in 12 additional RACs. These committees meet 

several times a year to review proposed changes to 

the recreation fee program. This demonstrates the 

agency’s continued commitment to improving its 

effectiveness and efficiency through increased 

public involvement and cooperation.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-10

Budget Line Item Federal Land and Facility Enhancement Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Federal Land & Facility Enhancement Fund

New Budget Authority $8,768 $50,000 $25,000 -$25,000

Program Level $13,417 $40,850 $22,400 -$18,450

Full-Time Equivalents (FTEs) 21 32 25 -7

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

FY 2011 Program Changes

The budget includes $22,400,000 for the Federal Land and Facility Enhancement Fund, a reduction of 

$18,450,000 from FY 2010. Funds will be used to initiate the conveyance of an estimated $10.3 million 

in land and excess administrative facilities, reducing deferred maintenance by approximately $1.4 million 

as displayed in Table B. Disposal of these assets are needed to right-size the agency’s real property 

portfolio.

Past Performance

In FY 2009, the agency collected $8.4 million through the completion of 32 land and facility 

conveyances. These conveyances eliminate deferred maintenance by approximately $2.7 million and 

reduced square footage by 243,082 as displayed in Table A. Outputs associated with this program are 

combined and reported under individual resource programs in the National Forest System, Land 

Acquisition, and Capital Improvement and Maintenance accounts.

Authorities

Numerous Federal statutes authorize the Secretary of Agriculture to retain proceeds from the conveyance 

of land and excess structures, and expend the revenues to acquire or develop land and improvements for 

administrative purposes. Revenues received from the sale of land or structures are deposited into the Sisk 

Act Fund and are available without further appropriation.

Interior and Related Agencies Appropriations Act P.L. 107-63, Section 329, as amended by P.L. 108-7, 

P.L. 108-108, and P.L. 108-447. This Act provided authority through September 30, 2008 to implement a 

pilot program that allowed the agency to retain proceeds from the conveyance of excess structures and 

expend the receipts for building maintenance, rehabilitation, and construction.

Forest Service Facility Realignment and Enhancement Act (FSFREA) P.L. 109-54, Title V of the 

Department of the Interior, Environment, and Related Agencies Appropriations Act, 2006. This Act 

provided authority through September 30, 2008 to convey unneeded administrative sites and retain the 

proceeds for building maintenance, rehabilitation, and construction provided certain criteria contained in 

Title V are met. In addition, projects initiated under the pilot authority may continue under the provisions 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-11

of the FSFREA. This authority has been extended through September 30, 2011 pursuant to the Omnibus

Appropriations Act, 2009 (P.L. 111-8). 

Program Overview 

The Forest Service currently owns approximately 17,400 administrative and research buildings. A large 

number of these facilities do not meet the agency’s needs and are either underutilized or in need of 

maintenance in order to meet current health and safety standards. More than 60 percent of Forest Service 

facilities are more than 30 years old and more than half have exceeded their design life. Without major 

and often costly renovations, these structures frequently fail to meet administrative needs due to 

inadequate space; improper location; high maintenance costs; and failure to meet current health, safety, 

and accessibility codes. Improving asset management allows the agency to fully utilize mission critical 

and mission dependent assets and manage those assets in the right condition and at the right cost. 

Work activities include: notification, analysis, valuation, and realty case processing services; facility 

repairs, preventive maintenance, and replacement of parts and structural components; construction of new 

facilities, alteration of existing facilities to change function, and expansion of facilities to change capacity 

to meet needs that have changed to meet current mission critical functions.

The following programs are included in this Fund: 

Land and Facility Conveyances Under Special Legislation – This program enables specific national 

forests to convey land or facilities and use the proceeds to acquire, construct, or improve land and 

facilities within the same national forest or State.

Administrative Site Conveyances Program - This program provides for the realignment of the 

agency’s facility portfolio by providing an incentive for local managers to liquidate 

obsolete/underutilized assets and reinvest in the appropriate assets in the appropriate place to support 

the agency’s mission. This authority provides the opportunity to address efficiently current and future 

needs, to reduce annual lease costs, and to reduce the deferred maintenance backlog. In addition to 

operational benefits, the program also provides substantial economic and social benefits, such as 

providing local communities with additional tax base, and opportunities for redevelopment to align 

with community plans and economic stimulus strategies focused on development to enhance 

community goals.

Allocation and Integration

Federal Land and Facility Enhancement proceeds compliment discretionary appropriations in the National 

Forest System - Landownership Management and Capital Improvement and Maintenance – Facilities and 

Deferred Maintenance and Infrastructure Improvement budget line items. The revenues generated from 

the sale of land and facilities play an integral role in updating the agency’s land and facility program. 

Outputs associated with this program are combined and reported under the benefits to individual resource 

programs throughout the Forest Service appropriated accounts. Authority for obligation and expenditure 

of these funds is allocated to the regions based on the amounts collected from sales within that region.

Partnerships

The agency participates in partnerships with other Federal agencies, including the General Services 

Administration who maintains a national memorandum of agreement with the Forest Service to fulfill the 

requirements of FSFREA. In addition, the agency benefits from working with other Federal agencies, 

such as the Bureau of Land Management, as well as tribal governments, local communities, local 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-12

governments, and many private landowners. The program is enhanced by partnership opportunities in 

order to eliminate or reduce redundant efforts, such as leveraging funds to secure high priority resource 

lands for public access and resource protection or to co-locate with other Federal and non-governmental 

agencies to share facilities and thereby lower operation costs.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-13 TABLE A FY 2009 Land and Facility Conveyance Accomplishments Region State Forest Authority Project Name Year Initiated Sale Price Acres Conveyed Square Footage Reduced Deferred Maintenance Eliminated Use of Funds 

1 Montana Lolo RF Fort Missoula - Building 1 2006 480,000 $ 0.53 11,373 635,084 $ Deferred Maintenance1 Totals 480,000 $ 0.53 11,373 635,084 $ 2 Colorado White River RB Eagle Compound Horse Pasture 2006 1,275,000 $ 0.33 - - $ N/A2 Wyoming Medicine Bow RF Hayden Ranger Station & Storage Facility 2007 405,500 $ 2.04 16,380 177,000 $ Other2 Wyoming Shoshone RF Cody Interagency Fire Center 2008 188,000 $ 0.32 2,104 13,000 $ Other2 Totals 1,868,500 $ 2.69 18,484 190,000 $ 4 Nevada Humboldt Toiyabee RF Sandia & Austin Residences - Water Street House 2004 56,000 $ 0.86 2,668 49,000 $ Deferred Maintenance4 Nevada Humboldt Toiyabee RF Sandia & Austin Residences- Austin Main St. Dwelling 2004 46,000 $ 0.17 2,000 47,000 $ Deferred Maintenance4 Nevada Humboldt Toiyabee RF Sandia & Austin Residences - Sandia #24 2004 31,500 $ 0.29 2,032 144,000 $ Deferred Maintenance

4 Utah Dixie RF Enterprise Work Center 2007 195,000 $ 1.50 5,224 46,200 $ 

Construct New Facility, Deferred Maintenance, Disposal

4 Idaho Payette RF New Meadows Housing & Storage Buildings 2008 176,000 $ 0.96 6,964 265,900 $ Deferred Maintenance4 Totals 504,500 $ 3.78 18,888 552,100 $ 6 Washington Okanogan RF Twisp Ranger Station 2006 1,000,000 $ 6.39 54,791 433,446 $ Deferred Maintenance

6 Oregon Willamette RF Eugene Warehouse 2006 715,000 $ 2.50 37,020 142,058 $ Deferred Maintenance6 Oregon Wallowa Whitman RF Hudspeth House 2007 148,000 $ 0.48 2,056 6,403 $ Deferred Maintenance

6 Oregon Willamette RF Rigdon Highway 58 Administrative Site 2007 376,000 $ 5.94 12,689 95,932 $ Deferred Maintenance6 Oregon Mt Hood RF Estacada Compound 2007 555,000 $ 6.83 15,382 26,141 $ Deferred Maintenance6 Washington Colville RF Republic Administrative Site 2007 90,000 $ 0.70 2,625 32,895 $ Deferred Maintenance6 Oregon Wallowa Whitman RF Hill House 2007 108,000 $ 0.32 1,026 49,693 $ Deferred Maintenance6 Oregon Wallowa Whitman RF Joseph House 2007 103,000 $ 0.13 1,452 15,027 $ Deferred Maintenance

6 Washington Wenachee RF Leavanworth Residence 2007 205,000 $ 0.22 2,403 34,126 $ Other6 Washington Mt Baker RF Skykomish Houses 2008 575,000 $ 4.06 8,220 153,636 $ Deferred Maintenance6 Oregon Wallowa Whitman RF Silver Street House 2008 104,000 $ 0.17 1,368 7,750 $ Deferred Maintenance

6 Totals 3,979,000 $ 27.74 139,032 997,107 $ 

8 Virginia George Washington RF Wytheville Office & Work Center 2006 330,000 $ 4.00 11,410 73,450 $ Construct New Facility

8 Alabama NFs in Alabama RF Oakmulgee Ranger Dwelling 2007 108,000 $ 1.41 1,940 2,900 $ Construct New Facility

8 Alabama Nfs in Alabama RF Shoal Creek Ranger Dwelling 2007 68,000 $ 0.80 1,960 4,600 $ Construct New Facility8 Mississippi NFs in Mississippi RF Gloster Work Center 2007 56,150 $ 2.00 7,104 61,000 $ Construct New Facility8 Mississippi NFs in Mississippi RF Gloster Office 2007 27,000 $ 1.00 2,770 911 $ Construct New Facility

8 Oklahoma Oauchita RF Tiak Ranger Dwelling 2008 50,101 $ 0.26 1,400 1,000 $ Construct New Facility8 Totals 639,251 $ 9.47 26,584 143,861 $ 9 Minnesota Superior RF Old Isabella Administrative Site - Lot 5 2006 10,776 $ 1.00 2,678 1 $ Deferred Maintenance9 New Hampshire White Mnt RF Volpe Tract 874 , Plymouth 2006 120,000 $ 0.18 1,746 23,500 $ Improvement/Deferred Maintenance9 Pennsylvania Allegheny RF Ridgeway Ranger Station 2007 170,000 $ 9.68 10,160 117,401 $ Improvement/Deferred Maintenance9 Wisconsin Chequamegon RF Keyes Lakeside Residence 2006 537,000 $ 7.27 2,496 9,486 $ Improvement/Deferred Maintenance9 Pennsylvania Allegheny RB Marienville Half Lot 2007 2,000 $ 0.09 - - $ Improvement/Deferred Maintenance9 Missouri Mark Twain RF Old Doniphan Administrative Site 2008 103,000 $ 2.34 11,641 - $ Improvement/Deferred Maintenance9 Totals 942,776 $ 20.56 28,721 150,388 $ 

NATIONAL TOTALS 8,414,027 $ 64.77 243,082 2,668,540 $ 

1/ Total proceeds collected does not agree with actual collections deposited in FY 2008. This is due to delays in actual receipt of revenues collected for projects sold at the end of the previous fiscal year.  Actual collections deposited in FY 2008 totaled $20.5 million.Forest Service Facility Realignment and Enhancement Act of 2005 (FY 2006 Interior, Environment and Related Agencies Appropriations Act, Title V, P.L. 109-54)RF - Facility Conveyance ProjectRB - Bare Land Conveyance Project
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations14-14

TABLE B

FY 2011 Land and Facility Planned Conveyance Projects

Gross Deferred Proceeds Proceeds Planned 

Square Acres of Maintenance Estimated for for New Conveyance

Cong Authority Footage Land with Reduction Sale Value Maintenance Const. Completion 

Region State District Forest Project Name Used Eliminated Conveyance (thousands) (thousands) (thousands) (thousands) Date

2 CO 1 Bridger-Teton Sixth Street House, Leadville RF 3,009 0.5 10 $ 200 $ 200 $ - $ 20112 CO 2 Sawtooth Midland Summer Home Group, Lot 6 Cabin RB 965 - - $ $ 68 68 $ - $ 20112 TOTALS 3,974 0.5 10 $ 268 $ 268 $ - $ 4 WY 1 Bridger-Teton Pinedale Fire Center RF 3,240 1.2 23 $ 1,400 $ - $ 1,400 $ 20114 ID 2 Sawtooth Buck Camp Administrative Site - Land RB - 40.0 - $ $ 6,000 - $ 6,000 $ 20124 TOTALS 3,240 41.2 23 $ 7,400 $ - $ 7,400 $ 6 WA 4 Okanagon-Wenatchee Chinook Pass Work Center RF 10,897 - 129 $ 500 $ 250 $ 250 $ 20126 WA 2 Mt. Baker-Snoqualmie North Mountain RB - 10.0 - $ TBD TBD - $ 20116 TOTALS 10,897 10.0 129 $ 500 $ 250 $ 250 $ 

8 VA 9

George WashingtonJefferson Clinch Ranger Residence RF 2,420 - 3 $ 120 $ - $ 120 $ 2011

8 TOTALS 2,420 - 3 $ 120 $ - $ 120 $ 

9 MN 8 Chippewa Walker Westbranch Warehouse RF 2,176 - $ 6 $ 64 $ 64 $ - 20119 MO 8 Mark Twain Ava Replacement (Frederickstown) RF 7,280 - $ 73 $ 184 $ - $ 184 20119 MO 8 Mark Twain Ava Replacement (Potosi) RF 2,368 - $ 1 $ 60 $ - $ 60 20119 NH 2 White Mtn Ammonusuc Ranger Station RF 6,770 - $ 914 $ 300 $ - $ 300 20119 NH 2 White Mtn Gorham Depot RF 5,060 - $ 41 $ 100 $ - $ 100 20119 MN 8 Superior Ely Service Center RF 23,767 - $ 135 $ 589 $ - $ 589 20119 MI 2 Huron-Manistee White Cloud RF 12,642 - $ 12 $ 400 $ - $ 400 20119 MI 1 Hiawatha St. Ignace Dwelling RF 2,617 - $ 10 $ 257 $ - $ 257 20119 MI 1 Ottawa Ontonagon Ranger Dwelling RF 3,259 - 45 $ 65 $ - $ 65 $ 20119 MN 8 Superior Wolf Center Land RB - 14.5 - $ 30 $ - $ 30 $ 20119 TOTALS 65,939 - 1,237 $ 2,049 $ 64 $ 1,985 $ 

TOTALS 86,470 51.7 1,401 $ 10,337 $ 582 $ 9,755 $ 

Forest Service Facility Realignment and Enhancement Act of 2005 (FY 2006 Interior, Environment and Related Agencies Appropriations Act, Title V, P.L. 109-54)RF - Facility Conveyance ProjectRB - Bare Land Conveyance Project
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-15

Table C

Change in Land and Facility Planned Conveyance Projects

The following projects have been dropped from the Land and Facility Conveyance listings in FY 2008 

through FY 2010:

Fiscal

Year Region State Project Name Forest Acres

2008 1 MT Stevensville Ranger Station Bitterroot 1 4.8

2008 1 MT Darby Ranger Station Bitterroot 1 10.0

2008 1 MT Kooskia Administrative Site Clearwater 1 4.8

2008 1 MT Sylvanite Building No. 1045 Kootenai 1 5.0

2008 1 MT Sylvanite Building No. 1063 Kootenai 1 5.0

2008 9 PA Sheffield Ranger Headquarters Allegheny 5 5.5

2009 6 OR Raddue Guard Station Malheur 2 0.0

2010 4 ID Greenhorn Guard Station Sawtooth 2 5 - 40

2010 6 OR Big Elk Campground Siuslaw 5 3.0

Cong. 

District
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-16

Budget Line Item Timber Purchaser Election Road Construction

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Timber Purchaser Election Road Construction

New Budget Authority $4,000 $4,000 $4,000 $0

Program Level $2,854 $2,000 $2,000 $0

Full-Time Equivalents (FTEs) 21 3 3 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes 

The FY 2011 budget includes $2,000,000 which is the typical program level for this fund. Program level 

and accomplishments in FY 2011 are dependent upon the number of qualifying small businesses 

purchasing timber sales, and the number of those that do not have the capability to perform the required 

road work. The program constructs or improves specified roads and bridges in order to support the timber 

harvest operations of small business operators.

Past Performance

In FY 2009, 1 stream crossing was constructed or reconstructed for aquatic organism passage, 79 miles of 

roads received maintenance, and 14 miles of passenger car and 23 miles of high clearance/closed roads 

were improved under the Purchaser Election Fund in support of the Forest Products program.

Authorities

National Forest Management Act of 1976 (16 U.S.C. 472a(i)). The Act authorizes the Secretary of 

Agriculture to use any receipts from the sale of timber for the construction of roads required under the 

timber sale contract. 

Department of the Interior and Related Appropriations Act, 1999 (16 USC 535a (c)) (P.L. 105-277, div. 

A, Sec. 101(e), [title III, Sec. 329], Oct. 21, 1998, 112 Stat. 2681-231, 2681-292.) This Act authorizes 

small business timber purchasers to elect to pay the Forest Service to reconstruct or construct any 

permanent roads or bridges required by the timber sale. The timber purchaser must be classified as a 

small business operator, and the total estimated reconstruction and construction cost in the timber sale 

contract must exceed $50,000.

Department of the Interior, Environment, and Related Appropriations Act, 2008 (P.L. 110-161, Sec. 6., 

div. F, [title IV, Sec. 423], Dec. 26, 2007, 121 Stat. 2150.) This Act authorized the use of $15,000,000 

from current balances of the Purchaser Election Fund for vegetative treatments.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-17

Program Overview 

The Purchaser Election program supports construction and reconstruction of any permanent road or 

bridge required under the terms and conditions of timber sale contracts. When a small business timber 

purchaser is awarded a contract, the purchaser may elect to pay the Forest Service to construct or 

reconstruct specified roads in the timber sale contract to a standard necessary to harvest and remove 

timber and other forest products. The agency then uses the Purchase Election funds to contract for the 

required road work and administer the contract. To qualify for this program the estimated cost of road 

construction and/or reconstruction must exceed $50,000. This program benefits both small timber 

contractors who might otherwise be unable to bid on Forest Service timber sales, as well as providing for 

appropriate road improvements preventing soil degradation, stream sedimentation, or other damages 

resulting from poor road construction and maintenance.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-18

Budget Line Item Timber Salvage Sales

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Timber Salvage Sales

New Budget Authority $23,867 $32,000 $23,000 -$9,000

Program Level $33,233 $34,200 $34,000 -$200

Full-Time Equivalents (FTEs) 300 301 296 -5

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Timber Salvage Sales

Volume of salvage timber sold (hundred cubic 

feet (CCF)) 1,862,175 978,050 871,054 588,081 390,432 367,400

Volume of salvage timber sold (million board 

feet (MMBF)) 974 517 472 294 195 184

FY 2011 Program Changes 

The FY 2011 President’s Budget proposes $34,000,000 for the Timber Salvage Sales Fund, a decrease of 

$200,000 from FY 2010. The funding will be used to analyze, prepare, and offer new timber salvage 

sales while administering timber salvage sales awarded in the recent past. Salvage sale treatments 

primarily follow recent fire and insect outbreaks in the west. It is expected that about 184 MMBF of 

timber volume would be sold in FY 2011, a decrease of about 11 MMBF from the FY 2010 level. 

Past Performance

In FY 2009, the agency sold 294 MMBF and exceeded its planned salvage sale sold volume by 15 

percent.

Authorities

The National Forest Management Act of 1976 (16 U.S.C. 472a (h)). This Act authorizes the Secretary of 

Agriculture to require purchasers of salvage timber to make monetary deposits in a designated Treasury 

fund to cover the costs for sale preparation and administration, and the engineering design and 

administration of any needed roads necessary for the harvesting of the salvage timber. Funds are 

available until expended.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-19

Program Overview

The Salvage Sale program collects revenues from the sale of timber from dead and dying trees to prepare 

and administer future salvage timber sales, including engineering support. These revenues are deposited 

into the Salvage Sale Fund and are available to immediately respond to timber salvage opportunities. The 

removal of fire-damaged, diseased and insect-infested timber through timber sale contracts is a tool to 

reduce the potential for catastrophic wildland fires and other hazards associated with dead or dying 

timber. Timely salvage sales also help maximize the recovery of potentially lost timber product value,

and through the collection of Knutson-Vandenberg Act funds, can provide for restoration of the affected 

area.

Allocation and Integration

Timber Salvage Sale funds are allocated based upon the amount of cash available in regional salvage 

accounts and the relative need for treatment each fiscal year. In addition to the Salvage Sale Fund, timber 

sales are funded through regular appropriations and other special authorities, including the Timber Sale 

Pipeline Restoration Fund, the Knutson – Vandenberg Fund as amended, and the Stewardship Contracting 

Fund. All of these funds receive a portion of the revenues received from timber sales. 

Partnerships

Implementation of salvage logging projects is highly dependent on the availability of local contractors 

that can perform the work as well as places willing to purchase the forest products. Otherwise, these 

projects would be cost-prohibitive to perform. Receiving facilities could include electric energy 

production facilities, sawmills, firewood processing plants, or paper mills.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-20

Budget Line Item Stewardship Contracting

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Stewardship Contracting

New Budget Authority $5,724 $4,500 $4,660 $160

Program Level $3,286 $6,590 $6,000 -$590

Full-Time Equivalents (FTEs) 0 0 0 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Stewardship Contracting

Acres of forest vegetation established 47 111 784 1,344 1,166 1,400

Acres of forest vegetation improved 13,008 14,275 15,854 16,338 23,573 25,000

Acres of noxious weeds/ invasive plant 

treatments 30 193 869 6,535 1,292 7,000

Acres of wildlife habitat restored or improved 4,022 12,196 5,804 36,334 8,630 15,000

Miles of stream habitat restored or enhanced 2 87 15 47 99 50

Miles of roads decommissioned 68 29 62 9 39 35

Miles of high clearance system roads 

improved N/A 129 105 116 148 135

Miles of passenger car system roads improved N/A 35 98 54 44 60

Volume of timber sold (hundred cubic feet 

(CCF)) 471,996 655,072 678,328 743,417 825,000 830,000

Volume of timber sold (million board feet 

(MMBF)) 241 331 339 0 413 415

Green tons of biomass made available for 

energy production 70,147 383,767 213,238 467,266 376,000 400,000

Acres of stewardship contracts / agreements 

awarded 60,344 77,676 65,890 88,304 121,000 135,000

Acres of hazardous fuels treated to reduce the 

risk of catastrophic fires 59,152 49,938 58,067 69,607 86,339 60,000

Acres of wildland-urban interface (WUI) highpriority hazardous fuels treated 35,727 34,285 35,617 36,858 38,500 40,000

Number of stewardship contracts / agreements 

contributing to watersheds in fully 

functioning condition (number) 7 4 7 4 12 6

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $6,000,000 for Stewardship Contracting, a decrease in 

program of $590,000 from FY 2010. The decrease is due to a projected decline in retained receipts in FY 

2010. These funds become available when the project work exceeds the cost of the service work obtained 

under an integrated resource contract. This funding is used to improve, maintain, and/or restore forest 

and rangeland health; restore and maintain water quality; improve fish and wildlife habitat; reestablish 

native plant species; and reduce hazardous fuels that pose risks to communities and ecosystem values.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-21

Past Performance

The Program Performance table above shows the variety of resource accomplishments derived from the 

offset of the value of the forest products in addition to those resource accomplishments from the retained 

receipts on other authorized projects. Many of the accomplishments resulting from stewardship 

contracting activities increased in FY 2009 over those planned, as shown in the Program Performance 

table displayed above. This is due in part to the variability both in the resource work needed in the region 

where the receipts are collected and the cost of those activities. 

Authorities

Department of the Interior and Related Appropriations Act, 1999 (16 USC 2104 note) (P.L. 105-277, div.

A, Sec. 101(e), [title III, Sec. 347], Oct. 21, 1998, Stat. 2681-231, amended by Department of the Interior 

and Related Appropriations Act, 2003 (P.L. 108-7, div. F, [title III, Sec. 323], Feb. 20, 2003, 117 Stat. 

275. Section 323 supersedes the original authority granted to the Forest Service in section 347. This Act 

authorizes the Forest Service via agreement or contract to enter into stewardship projects to perform 

services to achieve land management goals and meet local and rural community needs. 

Program Overview 

Stewardship contracting enables the Forest Service to apply the value of timber or other forest products 

from stewardship sales as an offset against the costs to accomplish land and resource management 

objectives. If the offset value exceeds the value of the resource improvement treatments, those receipts 

are retained and deposited in the Stewardship Contracting Fund and are available until expended for other 

authorized stewardship projects. Stewardship contracting funds may be used for: 

1) Road and trail maintenance or obliteration to restore or maintain water quality;

2) Soil productivity, habitat for wildlife and fisheries, or other resource values;

3) Prescribed fires to improve the composition, structure, condition, and health of timber stands or 

improve wildlife habitat;

4) Removing vegetation or other activities to promote healthy forests, reduce fire hazards, or 

achieve other land management objectives;

5) Watershed restoration and maintenance;

6) Restoration and maintenance of wildlife and fisheries habitat; and

7) Control of noxious and invasive weeds, and re-establishment of native plant species.

Stewardship contracts are selected on a best-value basis and employ multi-year contracts that may be up 

to ten years. Collaboration with local and rural communities is an integral part of each stewardship 

contract or agreement.

Allocation and Integration

Stewardship Contracting retained receipts generally remain on the unit where the receipts were collected 

for use on other authorized projects. Funds can be only used on other units after approval by the regional 

forester in the region where the receipts were collected and only after public notification.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-22

Partnerships

Stewardship contracting allows for national, regional, and local-level partnerships. Significant 

partnerships exist with national organizations such as the Rocky Mountain Elk Foundation and the Wild 

Turkey Federation, which provide assistance in areas such as training and implementation. In addition to 

these national organizations, there are many local collaborative partnerships that have been built through 

stewardship contracting. These collaborative partnerships have resulted in community support for 

stewardship projects and helped the Agency move forward with projects without litigation costs and 

delays that have often confronted traditional timber sales and some other hazardous fuel reduction 

projects.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-23

Budget Line Item Timber Sales Pipeline Restoration Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Timber Sales Pipeline Restoration Fund

New Budget Authority $7,735 $7,000 $7,000 $0

Program Level $4,239 $8,000 $7,000 -$1,000

Full-Time Equivalents (FTEs) 35 53 47 -6

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Timber Sales Pipeline Preparation

Volume of pipeline timber prepared (hundred 

cubic feet (CCF)) 895,639 528,827 535,120 571,061 450,000 649,000

Volume of pipeline timber prepared (million 

board feet (MMBF)) 448 264 268 285 225 325

FY 2011 Program Changes

The budget includes $7,000,000 for the Timber Sales Pipeline Restoration Fund, a decrease of $1,000,000 

from FY 2010. Specific programs within this Fund are as follows:

Timber Sales Pipeline Preparation (-$750,000) – The FY 2010 President’s Budget includes 

$5,250,000 for the timber sales pipeline preparation, a decrease in budget authority of $750,000 from 

FY 2010. About 325 MMBF of timber volume would be added to the pipeline of timber sales 

prepared as a result of this funding. Program levels have been adjusted based on projected receipts 

collected in FY 2010.

Recreation Backlog (-$250,000) – The FY 2010 President’s Budget includes $1,750,000 to fund 

backlog recreation maintenance projects; a reduction of $250,000 from FY 2010. Emphasis is placed 

on repairs to correct health and safety deficiencies and reducing the backlog of deferred maintenance 

at priority recreation sites as identified on the forests’ Recreation Facility Analysis (RFA) and for 

system trails. 

Past Performance

In FY 2009, 285 MMBF in timber pipeline volume was prepared or 114 percent of the planned level. 

Outputs associated with the recreation backlog projects are combined and reported under the Capital 

Improvement and Maintenance Facilities and Trails programs.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-24

Authorities

Department of the Interior and Related Agencies Appropriations Act of 1996 (P.L. 104-134, Sec. 101 (c), 

[title III Sec. 327], April 26, 1996, 110 Stat. 1321-206 and 207). The Secretary of Agriculture is 

authorized to collect and deposit revenues from a specific set of timber sales (i.e., sales released under 

P.L. 104-19, [title II, Sec. 2001(k)], July 27, 1995) for the purpose of preparing timber sales and 

addressing the backlog of recreation projects. Revenues from the sale of timber prepared using Timber 

Sale Pipeline Restoration funds are also re-deposited into this fund and are available for preparation of 

additional timber sales and recreation backlog projects.

Program Overview

The Timber Sales Pipeline Restoration Fund accomplishes a multitude of land and resource management

objectives, such as improving forest health, restoring wildlife habitat, and providing forest products to 

meet local and national needs. In addition, as a result of the revenues collected, it is possible to address 

health and safety issues in recreation facilities and on system trails. Thus, this program also benefits the 

recreating public by addressing maintenance issues that may cause harm or otherwise detract from the 

outdoor experience.

The following programs are included in the Fund:

Timber Sales Pipeline Preparation - This activity includes the NEPA analysis to meet long term 

forest health and desired condition objectives, determining the volume and value of the trees to be 

removed, and timber sale layout and design leading to timber sale offer in future years. Seventy five 

percent of the Timber Sales Pipeline Restoration funds are used for preparation of future non-salvage 

timber sales to restore the timber sales pipeline volume. Expenditures may also include the necessary 

planning and design for the associated timber roads.

Recreation Backlog – Twenty-five percent of these funds are expended on backlog recreation facility 

projects and system trails. This activity includes maintenance and improvement of recreation sites, 

system trails, bridges, and trailheads. 

Allocation and Integration

Funding is allocated to the field each year based upon the actual prior year collections from qualifying 

timber sales, with 75 percent of the net receipts collected in each region being returned to them for 

additional timber sales pipeline work, and the remaining 25 percent for recreation backlog.

In addition to this fund, timber sales are funded through the National Forest System – Forest Products 

budget line item as well as the Salvage Sale Fund and the Knutson -Vandenberg Trust Fund as amended. 

Recreation facility and trail projects are also funded through the Capital Improvement and Maintenance –

Facilities, Trails, Deferred Maintenance and Infrastructure Improvement, and Legacy Roads and Trails 

budget line items, and the Permanent Appropriation – Federal Lands Recreation Enhancement Fund. 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-25

Partnerships

Effective implementation of this program requires that the timber industry infrastructure be located within 

a certain proximity to the national forests. Without it, timber sales may not be economically viable, and 

timber harvesting would incur costs, possibly very expensive. The agency accomplishes valuable 

recreation facility and trails work by leveraging funds and in-kind contributions through many 

partnerships. Volunteers, concessionaires, and other partners are engaged to enhance recreation 

experiences and help maintain nearly 70 percent of agency-owned recreation sites. Trail crews are one of 

the primary means for the Forest Service to provide jobs to young adults and partner with local 

communities and interest groups.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-26

Budget Line Item Forest Botanical Products

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Forest Botanical Products

New Budget Authority $1,844 $2,250 $2,330 $80

Program Level $1,385 $1,830 $2,330 $500

Full-Time Equivalents (FTEs) 17 17 17 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Forest Botanical Products

Sold value of forest botanical products $2,244,191 $2,503,442 $1,075,452 $1,773,732 $2,250,000 $2,250,000

FY 2011 Program Changes

In FY 2011, the budget includes $2,330,000 for the Forest Botanical Products Fund, an increase of 

$500,000 from the FY 2010 level to facilitate the sale of forest botanical products that meet local and 

national needs such as galax, ginseng, locust posts, rhododendron and laurel plants and roots, ramps, 

and medicinal plants. This program assures that botanical products are removed in a sustainable and 

environmentally benign manner, while responding to the need for culturally important, medicinal, and the 

wide variety of other botanical products.

This pilot program is authorized to collect fees through the end of FY 2014. The collections from the sale 

of forest botanical products is expected to increase in FY 2011. The regulations associated with this fund

are expected to be finalized prior to the beginning of FY 2011. The estimated value of forest botanical 

products is dependent on market conditions; however, we expect a relatively level demand during the life 

of the pilot program.

Past Performance

The total value of the products sold in FY 2009 was higher ($1,773,732) than FY 2008 despite the overall 

decline in market conditions.

Authorities

Department of the Interior and Related Agencies Appropriations Act, 2000 (16 U.S.C. 528 note) (P.L. 

106-113, div. B, sec. 1000(a)(3), [Appendix C, title III, Sec. 339), Nov. 29, 1999, 113 Stat. 1535), as 

amended by (P.L. 108-108, [title III, Sec. 335]. Nov. 10, 2003, 117 Stat. 1312). This Act authorizes the 

Secretary of Agriculture to charge and collect fees from persons who harvest forest botanical products to 

cover costs to the agency. Funds collected are deposited in a special fund in the Treasury. This authority 

is provided through September 30, 2014, with the funds collected available for expenditure through Sept. 

30, 2015. 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-27

Program Overview

This pilot authority provides a mechanism for charging and collecting fees from persons who harvest 

forest botanical products. Fees collected are to cover the costs associated with granting, modifying, or 

administering the authorization for harvesting, including the costs for environmental analyses. Work 

activities include inventory, analysis, sustainability determination for harvest levels, permit issuance and 

administration, and monitoring to facilitate the sale and harvest of forest botanical products through FY 

2015. The objectives of this pilot program are to provide for the sale and harvest of forest botanical 

products in a sustainable manner that contributes to meeting the Nation’s demand for these goods and 

services while maintaining, enhancing, or restoring forest ecosystems to desired conditions. 

Allocation and Integration

Funds collected through FY 2014 under this authority are currently authorized for expenditure on the unit

where funds were collected through FY 2015. 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-28

Budget Line Item Roads and Trails (10 percent) Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Roads & Trails (10 percent) Fund

New Budget Authority -$7,553 $11,200 $12,100 $900

Program Level $710 $1,500 $10,000 $8,500

Full-Time Equivalents (FTEs) 1 0 31 31

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes 

In FY 2011, the agency is requesting authority for use of these funds as previously provided and 

authorized in the Act of March 4, 1913. The FY 2011 program level is $10,000,000 which will be used to 

maintain, repair, or reconstruct roads and trails. Planned accomplishments will focus on reducing health 

and safety issues; and correcting road and trail deficiencies that are adversely affecting ecosystems, such 

as, removing barriers to aquatic organisms at stream crossings.

Past Performance

In FY 2009, 1 bridge was reconstructed, 7 miles of passenger car roads were improved, and 8 miles of 

roads received maintenance using prior year carryover funds. No new funds were available in FY 2009.

Authorities

The Act of March 4, 1913, as amended (16 U.S.C. 501). This Act authorizes 10 percent of all moneys 

received from the national forests during each fiscal year to be expended for the construction and 

maintenance of roads and trails within the national forests in the States from which proceeds are derived.

Department of the Interior, Environment, and Related Appropriations Act, 2010 (P.L. 111-88, div. A, title 

III, Oct. 30, 2009, 123 Stat. 2940). This Act directed “That funds becoming available in fiscal year 2010

under the Act of March 4, 1913 (16 U.S.C. 501) shall be transferred to the General Fund of the Treasury 

and for any other purpose unless the funds are appropriated.”

Program Overview 

A total of all national forest receipts are used by the Forest Service, without regard to the State in which 

the amounts were derived, to repair or reconstruct roads, bridges, and trails on NFS lands. Beginning in 

FY 1999 and subsequent appropriation acts, the authority was expanded to allow the use of funds for the 

purpose of improving forest health conditions, and repair or reconstruction of roads and bridges on NFS 

lands in the wildland-urban interface where there is an abnormally high risk of fire. The program reduces 

risk to human safety and public health and property, and enhances ecological functions, long-term forest 

productivity, and biological integrity. Funds are directed towards correcting road and trail deficiencies 

that adversely affect ecosystems. 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-29

Allocation and Integration

In FY 2008, 2009, and 2010, Congress directed that these receipts be transferred to Treasury. 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-30

Budget Line Item Midewin National Tallgrass Prairie Rental Fee Account

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Midewin National Tallgrass Prairie Rental Fee Fund

New Budget Authority $548 $1,100 $1,100 $0

Program Level $571 $800 $800 $0

Full-Time Equivalents (FTEs) 2 1 1 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

The FY 2011 President’s Budget includes $800,000 to restore and manage prairie and wetland habitat on 

the Midewin National Tallgrass Prairie (MNP). The funds provide for maintaining native plant 

communities and grassland bird habitat at the prairie. The ability to collect funds from grazing and 

agricultural uses provides a needed resource to the Prairie managers to continue to restore ecosystems and 

habitats in order to enhance biodiversity; promote scientific, environmental, and educational research; 

develop best practices for land management; and provide a variety of recreation opportunities which 

would otherwise be foregone.

Authorities

The Illinois Land Conservation Act of 1995 (16 U.S.C. 1609 note) (P.L. 104-106, div. B, [title XXIX, 

sec. 2915 (b), (c)], Feb. 10, 1996, 110 Stat. 601-602). The Secretary of Agriculture is authorized to issue

agricultural special use authorizations or grazing permits for purposes primarily related to erosion control, 

provision for food and habitat for fish and wildlife, or other resource management activities consistent 

with the purposes of the Midewin National Tallgrass Prairie.

Program Overview 

The Illinois Land Conservation Act of 1995 established MNP, to be managed as part of the National 

Forest System. The Act authorized the Secretary of Agriculture to issue agricultural special use 

authorizations or grazing permits. After appropriate payments to the State of Illinois and Will County, 

pursuant to the Act of May 23, 1908, and section 13 of the Act of March 1, 1911 (16 U.S.C. 500), 

available receipts from rental fees may be used to cover the cost of restoration, prairie improvements, and 

administrative activities.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-31

Budget Line Item Midewin National Tallgrass Prairie Restoration Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Midewin National Tallgrass Prairie Restoration Fund

New Budget Authority $0 $0 $0 $0

Program Level $0 $0 $0 $0

Full-Time Equivalents (FTEs) 0 0 0 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

No funds are included for this program in the FY 2011 President’s Budget.

Authorities

The Illinois Land Conservation Act of 1995 (16 U.S.C. 1609 note) (P.L. 104-106, div. B, [title XXIX, 

sec. 2915 (d), (e) and (f)], Feb. 10, 1996, 110 Stat. 602). The Secretary of Agriculture is authorized to 

charge reasonable user fees for the admission, occupancy, and use of the Midewin National Tallgrass 

Prairie; and may sell for salvage value any facilities and improvements which have been transferred under 

this Act. The Secretary may use amounts in the fund, in such amounts as are provided in advance in 

Appropriation Acts, for restoration and administration of the Midewin National Tallgrass Prairie.

Program Overview 

The Illinois Land Conservation Act of 1995 established the Midewin National Tallgrass Prairie (MNP), to 

be managed as part of the National Forest System. Receipts from user fees, sales of surplus equipment, 

and the salvage value proceeds from the sale of any facilities and improvements can be used to cover the 

cost of restoration of ecosystems; construction of a visitor center, recreational facilities, trails, and 

administrative office; prairie improvement; and operation and maintenance of the MNP.

Salvage opportunities anticipated by the legislation have not materialized; less than $4,000 has been 

generated over the past 10 years. No expenditures have been made from this account since its creation.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-32

Budget Line Item Operation and Maintenance of Quarters

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Operation & Maintenance of Quarters

New Budget Authority $8,061 $9,000 $9,000 $0

Program Level $7,368 $8,300 $8,000 -$300

Full-Time Equivalents (FTEs) 28 27 27 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes 

The FY 2011 budget includes $8,000,000 for the Operation and Maintenance of Quarters program and 

reflects a decrease of $300,000 from FY 2010. These funds maintain employee occupied living quarters 

in safe and healthy conditions. The program will emphasize improvements to water systems and health 

and safety issues. 

Authorities

Forest Service Quarters Operations and Maintenance (5 U.S.C. 5911, Other Provisions). This Act 

authorizes the collection of rental income from employees living in government owned or leased 

residences. Such rents and charges shall be deposited in a special Treasury fund, to remain available for 

obligation until expended, for maintenance and operation of quarters. 

Program Overview 

This program provides for maintenance, operation, and management of employee housing facilities, 

including associated utility systems. Funds may also be used to pay the rental costs for leased quarters, 

including utilities, due to extreme housing shortages in the area. In addition to maintaining safe and 

pleasant housing, work in this fund contributes to the reduction of the agency’s deferred maintenance 

backlog.

Maintenance is defined as all types of maintenance to a structure or building including any governmentowned property and appliances integral to the facility. The fund does not cover betterments, additions, 

replacement construction, or new construction.

Allocation and Integration

Rental deposits are pooled and remain on the forest where collected. Maintenance less than $250,000 in 

cost may additionally be funded using the Facilities Multi-program Assessment funds . Maintenance 

needs greater than $250,000 in cost may additionally be funded using Capital Improvement and 

Maintenance – Facilities, and the Deferred Maintenance and Infrastructure Improvement budget line 

items.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-33

Budget Line Item Land Between the Lakes Management Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Land Between the Lakes Management Fund

New Budget Authority $3,756 $4,300 $4,500 $200

Program Level $3,892 $4,100 $4,300 $200

Full-Time Equivalents (FTEs) 17 15 15 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

The proposed budget level is $4,300,000 for the Land Between the Lakes (LBL) Management Fund, an 

increase of $200,000 above FY 2010, and commensurate with an expected overall increase in receipts. 

Funds will be used to support operational costs for customer-focused recreation and environmental 

education programs directly as well as capital improvements at the facilities where collected. LBL will 

continue to assess, analyze and implement the highest priorities identified in the Area Plan for integrated 

forest management, particularly in a larger portion of the Northern Oak Grassland Restoration 

Demonstration Area and the completion of work in Prior Creek area. Implementation of the Devil’s 

Backbone project will begin. The agency continues to maintain recreation facilities to standard for public 

use. Small infrastructure replacement projects will be completed in several of the developed facilities.

Past Performance

In FY 2009, work was completed on the “Woodlands Trace” scenic byway corridor management plan and 

several facility infrastructure component replacements. LBL maintained an average of about 30 percent 

cost recovery, and appropriations continue to hold at a relatively even level by using the Management 

Fund to cover routine and inflationary increases to operational costs for the facilities that generate 

revenue. In addition, in FY 2009, LBL sustained three major storms (a dry hurricane, significant ice 

storm, and heavy spring rains) which left the Area inaccessible for several days and weeks after each 

event. Visitation and revenue will hopefully recover with a more traditional weather pattern in FY 2010. 

Authorities

The Land Between the Lakes Protection Act of 1998 (16 USC 460lll-23 and 24) (P. L. 105-277, div. A, 

Sec. 101(e) [title V, Sec. 523 and Sec. 524], Oct. 21, 1998, 112 Stat. 2681-315). This Act authorizes the 

Forest Service to retain certain recreation revenue receipts from the Land Between the Lakes National 

Recreation Area, to be deposited into a special Treasury fund to be available for obligation until 

expended.

Program Overview 

The LBL National Recreation Area provides public recreational opportunities; conserves fish and wildlife 

and their habitat; provides for diversity of plants and animals; and offers opportunities for hunting, 

fishing, and environmental education. LBL hosts an average of 2 million visits annually from people who 

come from all over the Nation and more than 30 foreign countries. 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-34

Section 524 of the authorizing Act established a special fund known as the “Land Between the Lakes 

Management Fund.” All amounts received from charges, use fees, and natural resource use, including 

timber and agricultural receipts, are deposited into the management fund. Funds are available for 

management of LBL, including payment of salaries and expenses.

Partnerships

LBL’s program of work provides the opportunity to partner with a number of regional and national 

conservation organizations, such as the National Wild Turkey Federation, Quail Unlimited, Rocky 

Mountain Elk Foundation, and Ducks Unlimited. Further, LBL’s volunteers, coordinated through the 

Friends of LBL partnership, log more than 112,000 hours of volunteer time on LBL projects.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-35

Budget Line Item Valles Caldera Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Valles Caldera Fund

New Budget Authority $651 $1,000 $1,000 $0

Program Level $593 $1,000 $1,000 $0

Full-Time Equivalents (FTEs) 0 0 0 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

The budget includes $1,000,000 for the management and administration of the Valles Caldera National 

Preserve (Preserve) by the Valles Caldera Trust (Trust), a government corporation. The ability to charge 

and retain receipts for recreational and other uses provides the mechanism for the Preserve to improve 

access, enhance recreational opportunities, upgrade infrastructure, purchase branded products for resale, 

and the start-up costs for a science and education facility. The benefits of these programs are to facilitate 

the management of the Preserve and to further the statutory obligation of the Trust to become financially 

self-sufficient.

Past Performance

In FY 2009, the Trust offered several new recreation programs and made changes to the fishing program, 

allowing anglers to drive their own vehicles to specific locations along the San Antonio Creek within the 

Preserve. The hunting and fishing programs, as well as general public programs and special events 

accounted for over $520,000 in revenue, a decrease of over $110,000 from 2008. The Valles Caldera 

Trust awarded summer grazing on the Preserve to New Mexico State University (NMSU). The 

University, through the extension service, operated three small, multiple objective educational programs 

on the Preserve this summer designed to address animal health and ecological issues important in the 

regional area. There were 550 head of cattle on the Preserve this year and the program returned $28,860 

to the Trust.

Authorities

Valles Caldera Preservation Act (16 U.S.C. 698v-4, 698v-6). (P.L. 106-248, [title I, Sec. 106, Sec. 108], 

July 25, 2000, 114 Stat. 603 and 607; as amended by P.L. 109-132, [Sec. 2 (b) – (d)], 119 Stat. 2570). 

This Act authorizes the Valles Caldera Trust to receive and collect funds in support of the management 

and administration of the Preserve. This includes the authority to assess fees for admission to, and the use 

and occupancy of, the Preserve. In addition, the Trust may solicit and accept donations of funds, 

property, supplies, or services for the purpose of management of the Preserve.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-36

Program Overview

The Valles Caldera Preservation Act provided for the acquisition of the Baca Ranch located in the Jemez 

Mountains of New Mexico, designated the acquired lands as the Valles Caldera National Preserve, and 

created the Valles Caldera Trust to manage the 88,900-acre tract. The Preserve protects and preserves the 

scientific, scenic, geologic, watershed, wildlife, historic, heritage, and recreational values; and provides 

for multiple use and the sustained yield of renewable resources. The Preserve is managed by the Trust, a 

government corporation that prepares annual budgets with the goal of achieving a financially selfsustaining operation by 2015.

The Act allows for a variety of approaches to generate revenue in support of the management of the 

Preserve and to carry out the duties of the Trust. Various funding mechanisms exist from private, public 

and non-profit organizations. Options include accepting donations from foundations or the private sector

through charitable giving; or charging fees for use (grazing, forest products, filming, etc); and assessing 

admission fees and use fees. All monies received are deposited in the Valles Caldera Fund which is an 

interest-bearing account. These receipts are available without further appropriation for the administration, 

preservation, restoration, operation, maintenance, and improvement of the Preserve and its properties.

Partnerships

The Act requires management of the Preserve by the Trust, a government corporation subject to the 

Government Corporation Control Act. A nine-member Board of Trustees is responsible for the protection 

and development of the Preserve. Seven of its members are appointed by the President of the United 

States. In addition, the current Superintendent of nearby Bandelier National Monument and the Forest 

Supervisor of the Santa Fe National Forest also serve on the Board. All Board decisions are made at 

public meetings. In August of 2002, the management authority was transferred to the Trust. 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-37

Budget Line Item Administration of Rights-of-Way and Other Land Uses

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Permanent Funds

Administration of Rights-of-Way & Other Land Uses

New Budget Authority $4,768 $6,900 $8,500 $1,600

Program Level $3,369 $7,418 $8,300 $882

Full-Time Equivalents (FTEs) 29 37 42 5

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

The budget includes $8,300,000 for the Administration of Rights-of-Way and Other Land Uses, an 

increase of $882,000 above the FY 2010 program level. Funds will continue implementation of the 

Recovery of Cost pilot program and provide for the processing and monitoring of commercial filming and 

organizational camp fee uses. Progress will be reviewed to ensure consistent and cost effective 

management occurs while improving customer service and reducing the backlog of permit applications. 

Past Performance

During FY 2009, the agency recovered approximately $4.2 million in costs involving 1,900 land uses. 

The backlog of authorizations also fell from 5,685 to 5,062 reflecting continued improvements in program 

administration.

Authorities

Numerous Federal statutes authorize the Secretary of Agriculture to assess and collect fees from 

applicants for, and holders of, special use authorizations. These fees pay for the agency’s administrative 

costs to process applications for, and monitor, such authorizations. These authorities include the 

Independent Offices Appropriations Act of 1952 (P.L. 82-137), Mineral Leasing Act of 1920, as amended 

(P.L. 66-146); and the Federal Land Policy and Management Act of 1976 (P.L. 94-579). In addition, 

specific legislation authorizing the implementation of each program within this account is as follows: 

Special Use Application and Permit Monitoring Fees. P.L. 106-113, Interior and Related Agencies 

Appropriations Act, 2000, Section 331 (113 Stat. 1501A-196 - 197), as amended by P.L. 108-447, 

Consolidated Appropriations Act, 2005, Division E, Section 345 (118 Stat. 3105), P.L. 109-54, Interior, 

Environment and Related Agencies Appropriations Act, 2006, Section 425 (119 Stat. 555) and P.L. 110-

161 Consolidated Appropriations Act, 2008. This Act provides authority through September 30, 2012 to 

implement a pilot program to improve customer service to applicants and holders of special land use 

authorizations and reduce the agency’s backlog of expired authorizations. 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-38

Commercial Filming (16 U.S.C. 460l-6d). The Act of May 26, 2000 (P. L. 106-206) authorizes retention 

of fees collected for commercial filming and photography land use authorizations and the obligation of 

the monies for the maintenance of the filming site. Land use fees are based on an appraised fee schedule 

to process applications and monitor still photography and commercial filming. All land use fees collected 

and costs recovered remain at the site where collected and are available until expended. 

Organizational Camp Fees P.L. 108-7, Consolidated Appropriations Resolution, 2003, Title V National 

Forest Organizational Camp Fee Improvement Act of 2003 (117 Stat. 294-297). This Act provides 

authority to establish a land use fee system for the occupancy and use of National Forest System lands by 

organizational camps that serve young people or individuals with a disability. 

Program Overview 

Approximately 50,000 land use authorizations and over 40,000 recreation authorizations are currently 

administered annually utilizing Federal lands for a wide variety of purposes, including energy-related uses 

and campground management. Processing and authorizing these uses are important in facilitating the 

development and transmission of affordable, reliable energy, in addition to supporting economic 

development and promoting the public health and safety of populations within or in proximity to national 

forests throughout the country. Work activities include: inspection, oversight, and monitoring of existing 

authorizations to ensure compliance with the terms and conditions of the authorization; and providing

responses, analyses, and decisions to requests to occupy and use NFS lands. 

Programs included in this Fund are as follows:

Special Use Application Processing and Permit Monitoring Fees - Fees collected are based on the 

agency’s actual cost to process special use applications and monitor compliance. All cost recovery 

fees collected are spent at the administrative unit(s) where the processing and/or monitoring work is 

being conducted. Consistency is also established with the Bureau of Land Management (BLM), 

particularly where projects that occupy Federal lands are managed by both agencies.

Commercial Filming Special Uses Land Rent – Eighty percent of land-use fees from still photography 

and commercial filming activities are used for managing these activities and streamlining issuance of 

authorizations. Ten percent is used to cover the unit’s cost of collecting these fees. The remaining 10 

percent is used in developing policies and procedures for the management of these activities, of which 

5 percent is available to the regional forester and the other 5 percent to the Washington Office.

Organizational Camp Fees - Fees are based on a percentage of the agricultural land value, adjusted 

for services to at-risk youth. Fees collected are available until expended for program administration, 

monitoring special use authorizations, interpretive programs, environmental analysis and restoration 

activities, and similar purposes. 

Allocation and Integration

Land use and recreation use fees supplement discretionary appropriations such as the National Forest 

System – Landownership Management and Recreation, Heritage, and Wilderness budget line items. 

These revenues are an integral part of sustaining the agency’s special-use program. Outputs associated 

with these programs are combined and reported under individual resource programs throughout the Forest 

Service appropriated accounts.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-39

Partnerships

The agency cooperates with many other Federal agencies, such as the BLM, the Federal Energy 

Regulatory Commission, and the Army Corp of Engineers; interagency working groups; State, local, and 

tribal governments; and partners, such as the Western Utility Group and National Forest Recreation 

Association. Partnership opportunities provide an opportunity to streamline procedures in order to deliver

consistent and clear direction.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-40

Budget Line Item Payment Funds

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Payment to States Funds

Payments and Transfers from the National Forest Fund

Payment to Minnesota

Funding $2,102 $6,150 $6,150 $0

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to States, Act of 1908

Funding $9,657 $9,755 $10,000 $245

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to States, SRS Act of 2000, Title II

Funding $51,813 $44,721 $42,000 -$2,721

Full-Time Equivalents (FTEs) 70 60 85 25

(NFF Fund) Payments and Transfers from the National Forest Fund

Payments to States, SRS Act of 2000, Title I & III

Funding $71,156 $35,944 $33,000 -$2,944

Full-Time Equivalents (FTEs) 0 0 0 0

Payments from Treasury

Payments to States, SRS Act of 2000, Title I & III

Funding $395,000 $386,700 $348,030 -$38,670

Full-Time Equivalents (FTEs) 0 0 0 0

Payments from National Grasslands and Land Utilization Projects

Payments to Counties

Funding $15,718 $13,000 $13,000 $0

Full-Time Equivalents (FTEs) 0 0 0 0

Payment to States Funds Funding $545,446 $496,270 $452,180 -$44,090

Payment to States Funds Full-Time Equivalents (FTEs) 70 60 85 25

FY 2011 Program Changes

The FY 2011 budget contains the mandatory payments to Minnesota of $6,150,000 as required by the 

authorizing legislation. The budget contains $10,000,000 for payments to States under the Act of 1908 

(25 percent fund). Payments under the 25 percent fund are made a year in arrears based on receipts and 

credits specified in the authorizing legislation. This is an increase of $245,000 from FY 2010.

The budget contains an increase in the transfer to the Forest Service of $279,000 for projects on Federal 

lands, and a reduction in the payment to States of $38,670,000 under the reauthorized Secure Rural 

Schools and Community Self-Determination Act of 2000. The budget contains $13,000,000 in payments 

to counties based on receipts from activities on the national grasslands and land utilization projects, which 

are paid as required by the authorizing legislation.

Authorities 

Payment to Minnesota

The Thye-Blatnick Act of June 22, 1948, as amended (16 U.S.C. 577g), Payment for Additional Lands 

Acquired in Northern Minnesota.
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-41

Payments to States

Secure Rural Schools and Community Self-Determination Act of 2000 (16 U.S.C. 500 note). This Act 

originally authorized through FY 2006 as P.L. 106-393, provides choices to counties to opt to receive a 

guaranteed level of annual payments for roads and schools and other authorized purposes as well as 

funding for specific resource improvement projects on the national forest where the county is located. If 

the county never opts in, they receive payments under the Act of May 23, 1908. P.L. 110-28, the Iraq 

Accountability Appropriations Act of 2007, provided for payments under the Secure Rural Schools and 

Community Self-Determination Act of 2000 for FY 2007. The Act was reauthorized through FY 2012 on 

October 3, 2008 in P.L. 110-343, Division C, Title VI.

The Act of May 23, 1908, as amended (16 U.S.C. 500 note), Payment for Receipts for Schools and 

Roads. This Act, commonly known as “the 25 percent fund” or “the Act of 1908,” authorizes annual 

payments on a seven year rolling basis to States equal to 25 percent of revenues from the sale of goods 

and services by the national forests. States shall use these payments for schools and roads. The Act was 

amended on October 3, 2008 in P.L. 110-343, Division C, Title VI.

Payments to Counties – National Grasslands Fund

Title III of the Bankhead-Jones Farm Tenant Act of July 22, 1937, as amended (7 U.S.C. 1012). This Act 

authorizes annual payments on a calendar year basis to counties, equal to 25 percent of net revenues 

received during the year (excluding receipts from the sale of land). Counties shall use these payments for 

schools and/or roads. This Act pertains primarily to national grasslands and land utilization projects.

Program Overview 

Payment to Minnesota 

The Secretary of Agriculture was directed to acquire resorts, cabins, and private lands within the 

Boundary Waters Canoe Area Wilderness and permanent residents were prohibited after 1974. 

Additionally, in-lieu-of-tax payments were authorized to Cook, Lake, and St. Louis Counties for Federal 

wilderness land from any national forest receipts not otherwise appropriated. At the close of each fiscal 

year, the State of Minnesota is paid three-fourths of 1 percent of the appraised value of certain Superior 

National Forest lands in the counties of St. Louis, Cook, and Lake for distribution to those counties. The 

land value is reappraised every 10 years. New appraisals were done in 2008.

Payments to States 

Counties that opt to not receive payments under the Secure Rural Schools and Community SelfDetermination Act of 2000 as reauthorized do receive, with few exceptions, 25 percent of all moneys 

collected from the national forests and grasslands in which the forests and grasslands are located under 

the Act of 1908. These payments benefit public schools and roads in the county or counties within the 

national forests and grasslands. P.L. 110-343, amended the Act of 1908 which, among other things, 

changed the payment formula. Instead of being based on each year’s receipts, payments to the states are 

now based on a rolling seven-year average of receipts. (16 U.S.C. 500 note).

Counties electing to receive their share of a State’s “full payment amount” under the Secure Rural 

Schools and Community Self-Determination Act of 2000, as amended by P.L. 110-343, receive payments 
FY 2011 Budget Justification USDA Forest Service

Permanent Appropriations 14-42

under a formula based on several factors, including acreage of Federal land, previous payments, and per 

capita personal income. The payments will ramp down each succeeding year through 2011.

Payments to Counties – National Grasslands Fund 

Annual payments are authorized to counties which contain Forest Service lands that were acquired under 

the Bankhead-Jones Act. Twenty-five percent of the revenues received during the year (excluding 

receipts from the sale of land) from each national grassland or land utilization project are paid to the

counties in which such lands are located. The funds are restricted to uses that benefit public schools and 

roads.
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-1

Appropriation Trust Funds

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Trust Funds

Cooperative Work, Knutson-Vandenberg

New Budget Authority $196,171 $50,000 $51,750 $1,750

Program Level $67,795 $68,200 $68,800 $600

Full-Time Equivalents (FTEs) 465 469 468 -1

Cooperative Work, Knutson-Vandenberg Regional Work

New Budget Authority $0 $0 $0 $0

Program Level $14,052 $16,700 $10,000 -$6,700

Full-Time Equivalents (FTEs) 132 140 84 -56

Cooperative Work, Forest Service

New Budget Authority $22,730 $50,000 $51,750 $1,750

Program Level $40,274 $50,000 $50,000 $0

Full-Time Equivalents (FTEs) 235 240 240 0

Land Between the Lakes Trust Fund

New Budget Authority $99 $255 $260 $5

Program Level $20 $50 $100 $50

Full-Time Equivalents (FTEs) 0 0 0 0

Reforestation Trust Fund

New Budget Authority $30,000 $30,000 $30,000 $0

Program Level $30,441 $30,000 $30,000 $0

Full-Time Equivalents (FTEs) 193 180 178 -2

Trust Funds New Budget Authority $249,000 $130,255 $133,760 $3,505

Trust Funds Program Level $152,582 $164,950 $158,900 -$6,050

Trust Funds Full-Time Equivalents (FTEs) 1,025 1,029 970 -59

Table Note: Cooperative Work, Forest Service includes both receipts and reimbursable collections.

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-2

Budget Line Item Cooperative Work Trust Fund 

Knutson-Vandenberg Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Trust Funds

Cooperative Work, Knutson-Vandenberg

New Budget Authority $196,171 $50,000 $51,750 $1,750

Program Level $67,795 $68,200 $68,800 $600

Full-Time Equivalents (FTEs) 465 469 468 -1

Cooperative Work, Knutson-Vandenberg Regional Work

New Budget Authority $0 $0 $0 $0

Program Level $14,052 $16,700 $10,000 -$6,700

Full-Time Equivalents (FTEs) 132 140 84 -56

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Knutson-Vandenberg

Acres of forest vegetation established 63,112 62,195 59,135 50,622 75,373 55,700

Acres of forest vegetation improved 59,426 61,381 44,679 33,662 59,159 49,250

Highest priority acres treated annually for noxious 

weeds and invasive plants on NFS lands 14,119 19,977 18,502 13,234 25,293 37,700

Acres of lake habitat restored or enhanced with nonWildlife funds 11 1,118 1,006 1,183 172 180

Miles of stream habitat restored or enhanced 19 2 9 2 12 45

Acres of wildlife habitat (terrestrial) (TES and NonTES) restored or improved with non-Wildlife dollars N/A 99,663 103,518 87,997 190,869 195,000

Miles of roads decommissioned 18 61 22 66 0 0

Miles of high clearance system roads improved N/A 33 0 4 0 0

Miles of passenger car system roads improved N/A 13 0 2 0 0

Number of stream crossings constructed or 

reconstructed to provide for aquatic organism passage 0 15 2 1 0 0

Acres of hazardous fuels treated to reduce risk of 

catastrophic fire N/A 129,864 146,604 71,538 31,503 30,000

Acres of rangeland vegetation improved 1,178 168 3,418 508 2,118 1,300

Acres of watershed improvement N/A 4,670 3,420 3,205 10,837 8,290
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-3

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Knutson-Vandenberg Regional Work

Acres of forest vegetation established 39,641 6,134 151 99 500 0

Acres of forest vegetation improved N/A 4,570 767 1,441 0 0

Forestlands treated to achieve healthier conditions N/A 57,756 29,911 16,527 11,000 7,000

Volume of timber sold (hundred cubic feet (CCF)) 621,919 716,408 340,738 183,920 335,755 264,000

Volume of timber sold (million board feet (MMBF)) 329 372 179 92 168 132

Miles of property line maintained to standard N/A 14 0 N/A 0 0

Miles of landownership boundary line 

marked/maintained to standard N/A 36 6 17 0 0

Miles of property line marked to standard N/A 22 0 N/A 0 0

Miles of high clearance system roads receiving 

maintenance 692 1,811 136 N/A 0 0

Miles of road maintenance 1,908 3,609 0 51 0 0

Miles of passenger car roads receiving maintenance 1,216 1,799 272 N/A 0 0

Acres of hazardous fuels treated to reduce risk of 

catastrophic fire N/A 45,951 10,806 2,187 0 0

Acres of wildland-urban interface (WUI) high-priority 

hazardous fuels treated 110,893 35,588 5,549 91 0 0

Highest priority acres treated annually for noxious 

weeds and invasive plants on NFS lands 40,798 6,993 2,706 1,679 0 0

Acres of rangeland vegetation improved 860 0 0 103 0 0

Acres of watershed improvement 773 242 2 0 0 0

Acres of lake habitat restored or enhanced with nonWildlife funds 12 345 0 0 0 0

Miles of stream habitat restored or enhanced N/A 2 0 0 0 0

Acres of wildlife habitat (terrestrial) (TES and NonTES) restored or improved with non-Wildlife dollars N/A 9,769 46 147 0 0

FY 2011 Program Changes

The FY 2011 President’s Budget includes $68,800,000 in the Knutson-Vandenberg (K-V) program to 

conduct sale area improvement work on timber sale areas on the national forests, an increase in program

of $600,000 from FY 2010. This funding will be used within timber sale areas to implement reforestation 

following timber harvest, as well as other sale area improvements approved in the related environmental 

analyses. The funding level represents the portion of the total required sale area improvement work 

planned for accomplishment in FY 2011. 

There will also be $10,000,000 available in the K-V Regional Work program, a decrease in program of 

$6,700,000 from FY 2010. This work will primarily focus on vegetative treatments to meet forest health 

objectives, 132 MMBF of timber volume will be produced as part of these forest health treatments. 

Past Performance

Completion of K-V timber sale area projects is highly dependent upon the rate at which timber harvest 

units are harvested and accepted as completed. Factors include weather conditions that can slow down 

the rate of timber harvest and decisions made by the timber sale purchaser regarding which units are 

harvested in a given operating season. However, the deferred or delayed projects are completed in 

subsequent years as the K-V funds have already been collected to perform the work.
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-4

In FY 2009, for the K-V Regional Work program, the agency treated 16,527 high priority acres to meet 

forest health objectives or approximately 290 percent of the planned. The timber volume sold was 

approximately 92 MMBF, or approximately 76 percent of projected level.

Authorities

The Act of June 9, 1930, (16 USC 576b) (P.L. 71-319, ch. 416, June 9, 1930, 46 Stat. 527), as amended 

by P.L. 94-588, 1976, and P.L. 109-54, Aug. 2, 2005. The Act, known as the Knutson-Vandenberg Act, 

established a special fund to collect a portion of timber sale receipts to pay for reforesting the area from 

which the timber was cut. The Act was amended in 1976 to allow the Forest Service to use these funds 

for other sale area improvement activities. The FY 2006 Interior Appropriations Act amended this 

authority to allow for the expenditure of unused funds, not needed to accomplish work on the sale area, on 

other areas “within the Forest Service region in which the timber sale occurred.” 

Program Overview

The following programs are included in this fund:

Knutson-Vandenberg – This program uses funds derived from timber sale revenues which are used 

for sale area improvement work within the timber sale area. Planned resource project work is 

documented in the sale area improvement plans and as determined by the project environmental 

analysis. The first priority for K-V program funds is reforestation of harvested areas. These funds 

can also be used to perform timber stand improvement and protection, and projects for the 

improvement of other resource values, including wildlife, soil, watershed, range, and recreation. 

Knutson-Vandenberg Regional Work - The FY 2006 Appropriations Act expanded the authority to 

allow for the expenditure of unused funds, not needed to accomplish work on the timber sale area, on 

another area “within the Forest Service region in which the timber sale occurred.” Unused collections 

are generated when actual costs are less than planned costs. This new authority is used to accomplish 

watershed restoration; wildlife habitat improvement; control of insect, disease, and noxious weeds; 

community protection activities; and the maintenance of forest roads. To accomplish these 

objectives, K-V Regional Work program funds may be utilized for timber sale planning, preparation, 

administration, engineering support, and land line location.

Allocation and Integration

The Knutson-Vandenberg program funding is allocated to the regions based upon cash collected on 

timber sale areas and the planned resource projects identified on approved sale area improvement plans. 

The Knutson-Vandenberg Regional Work program funds are allocated based upon cash availability, and 

where additional funding would effectively achieve the purposes of the authority. 

Partnerships

The K-V program has contributed to partnerships and productive working relationships with State fish 

and game agencies and organizations such as the Wild Turkey Federation, Quail Unlimited, and the 

Ruffed Grouse Society. These productive relationships and partnerships are critical in the identification 

and planning of some K-V funded projects.
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-5

Budget Line Item Cooperative Work Trust Fund — Other

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Trust Funds

Cooperative Work, Forest Service

New Budget Authority $22,730 $50,000 $51,750 $1,750

Program Level $40,274 $50,000 $50,000 $0

Full-Time Equivalents (FTEs) 235 240 240 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

The FY 2011 President’s Budget proposes $50,000,000 for the Cooperative Work Trust Fund – Other 

program resulting in no program change from FY 2010. This level is consistent with anticipated 

collections from partners and cooperators. The collections allow the agency to leverage appropriated 

funds in order to deliver a variety of 

treatments and services which 

benefit Forest Service lands and 

other resource programs. 

Cooperative projects vary in size and 

scope each year depending on 

partner interest, objectives, and 

financial resources, and meet both 

agency and partner needs. Each 

agreement specifies the type of work 

to be done as well as the funds being 

donated. The program of work 

varies each year.

Authorities

The Act of June 30, 1914 (16 U.S.C. 498). This Act authorizes the acceptance of contributions for 

cooperative work in forest investigations, protection, management, and improvement of the National 

Forest System.

The Granger-Thye Act of April 24, 1950 (16 U.S.C. 572). This Act authorizes cooperation with other 

parties to perform work for permittees, agencies, organizations, and persons for the kinds of work that the 

Forest Service is authorized to do on lands of the United States.

The Roads and Trails Act of October 13, 1964 (16 U.S.C. 532-537). This Act authorizes the construction 

of roads using cooperative financing from other agencies.

The Act of June 30, 1978 (16 U.S.C. 1643). This Act authorizes the acceptance and use of donated funds 

for research activities.

Recreation

Trails

Heritage

Watershed

Reforestation

TSI

Wildlife

Range Invasives

Lands

Minerals

Inventory & 

Monitoring

Roads

Facilities

Research

Haz Fuel 

Reduction Fire 

Preparedness

Resource Activity Funding by Cooperators and Partners

FY 2009 
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-6

The Act of October 10, 1978 (7 U.S.C. 2269). This Act authorizes agencies within the U.S. Department 

of Agriculture to accept donations for non-research activities.

The Act of June 6, 1968 (16 U.S.C. 693d). This Act authorizes cooperation in the operation of the Robert 

S. Kerr Memorial Arboretum and Nature Center.

The Act of July 4, 1968 (16 U.S.C. 471h). This Act authorizes cooperation in the operation of the Cradle 

of Forestry.

Title 31, United States Code, section 1321 (31 U.S.C. 1321). Section 1321 of Title 31 of the United 

States Code authorizes Trust Funds.

Program Overview

The Cooperative Work Trust Fund - Other program is used to collect deposits received from partners and 

cooperators for protecting and improving resources of the National Forest System as authorized by 

cooperative agreements. The deposits are for a wide variety of activities that benefit and support 

programs in Forest and Rangeland Research, on National Forest System lands, and for other agency 

activities. 

The variety of activities performed using funds include wildlife habitat enhancement; recreation program 

activities; research; fire prevention and education; construction, reconstruction, and maintenance of roads, 

trails, and other improvements; scaling services; fire protection; and other resource purposes as authorized 

by law. 

Cooperative deposits are received from a vast assortment of local, regional, and national organizations 

and individuals; State and other public agencies; industrial associations; and other private sources. The 

deposits are made under a variety of cooperative instruments that specify the mutual benefits of the work. 

Cooperative deposits leverage appropriated funds to increase effectiveness and complement the objectives 

of Forest Service appropriated resource management programs and cooperative research projects. These 

programs and projects may involve any aspect of forestry and vary widely in scope and duration. Refer to 

the Special Exhibit on Forest Service Partnerships for additional information on cooperative activities 

using Challenge Cost Share agreements.

 

Cooperative road maintenance deposits can be made by commercial users of the National Forest Road 

System in lieu of actually performing their commensurate share of road maintenance. These deposits are 

used in conjunction with the other road maintenance appropriations to provide maintenance of system 

roads by the Forest Service. 

Deposits for administering and protecting non-Federal land within or near the national forests can be 

made by owners of non-Federal lands that are intermingled with, or adjacent to, National Forest System 

lands. These deposits help landowners manage their lands in accordance with good forest management 

practices and provide for wildfire protection on State and private lands intermingled with Federal 

ownership.
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-7

Budget Line Item Land Between the Lakes Trust Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Trust Funds

Land Between the Lakes Trust Fund

New Budget Authority $99 $255 $260 $5

Program Level $20 $50 $100 $50

Full-Time Equivalents (FTEs) 0 0 0 0

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

FY 2011 Program Changes

The budget includes $100,000 in FY 2011 for public education and regional promotion in cooperation 

with development districts, chambers of commerce, and State and local governments, a program increase 

of $50,000 over FY 2010. Emphasis will be placed on environmental educational messages tied with 

tourism initiatives in a way that will draw visitors to active management projects, where they will learn 

about the desired conditions for the ecosystem in a variety of creative ways. The requested increase in 

spending authority provided to Land Between The Lakes (LBL) will be used to cover additional program 

elements of the “Respect the Resource” environmental education program that are anticipated. 

Past Performance

In FY 2009, the Trust Fund continued its support of a successful school grant program for environmental 

education, serving more than 3,500 students. The Fund also helped launch a recycling campaign, tied to 

LBL’s “Respect the Resource” program, utilizing displays and interpretive signage to educate LBL staff 

and visitors to facilities. The campaign also assisted with education about water use and plastics.

Authority

Land Between the Lakes Protection Act of 1998 (16 U.S.C. 460111-31) (P.L. 105-277, div. A, Sec. 

101(e) [title V, Sec. 531], Oct. 21, 1998, 112 Stat. 2681-317). This Act establishes the Land Between the 

Lakes Trust Fund. In accordance with Title V of the Act, responsibility for the LBL National Recreation 

Area transferred from the Tennessee Valley Authority (TVA) to the Secretary of Agriculture. 
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-8

Program Overview

The LBL Protection Act called for LBL to be managed as a unit of the National Forest System (NFS). 

Section 531 of the Act established a special interest-bearing fund known as the “Land Between the Lakes 

Trust Fund” to be available for public education, grants, and internships related to recreation, 

conservation, and multiple-use land management; and regional promotion in cooperation with 

development districts, chambers of commerce, and State and local governments. 

In accordance with the terms described in the Act, beginning September 30, 2000, TVA began depositing 

$1 million annually into the fund for five consecutive years, for a total of $5 million. The Forest Service 

has allowed the principal balance to grow and much of the interest to compound, and LBL has now begun 

to use the interest earned on the fund for the purposes intended by Congress.
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-9

Budget Line Item Reforestation Trust Fund

(dollars in thousands)

FY 2009 

Enacted

FY 2010 

Enacted

FY 2011 

President's 

Budget

FY2011 vs 

FY2010

Trust Funds

Reforestation Trust Fund

New Budget Authority $30,000 $30,000 $30,000 $0

Program Level $30,441 $30,000 $30,000 $0

Full-Time Equivalents (FTEs) 193 180 178 -2

New Budget Authority: Amounts equal actual or anticipated receipts for the fiscal year.

Program Level: Actual balance of obligations in FY 2009 and planned obligations for FY 2010 and FY 2011.

 FY2006 

Actual

FY 2007 

Actual

FY 2008 

Actual

FY2009 

Actual

FY 2010 

Target

FY 2011 

Target

Reforestation Trust Fund

Acres of forest vegetation established N/A 70,290 71,731 56,567 50,050 50,300

Acres of forest vegetation improved N/A 22,782 26,231 33,841 23,397 17,000

FY 2010 Program Changes

The FY 2011 budget includes $30,000,000 to analyze, prepare, and implement reforestation and forest 

vegetation improvement projects outside timber sale areas on NFS lands, the same funding level as in FY 

2010. The FY 2011 funding would provide for 50,050 acres of reforestation and 17,000 acres forest 

vegetation improvement. The FY 2011 program prioritizes reforestation over forest vegetation

improvement, and, within the reforestation activity, prioritizes higher-cost planting of seedlings over the

relatively inexpensive certification of natural regeneration. Planting ensures establishment of desirable 

species targeted for their adaptability and long-term carbon sequestration potential. This funding 

emphasis is critical to reforesting NFS lands impacted by wildfires, insects and diseases outside timber 

sale areas.

Reforestation and forest vegetation improvement efforts provide climate change benefits through 

stabilization of critical watersheds and soils impacted by natural events, reduction of the long-term risk of 

uncharacteristic wildfire (both in terms of frequency and intensity), improved forest health and resilience, 

increased habitat diversity, and increased long-term carbon sequestration capacity.

Past Performance

In FY 2009, the program accomplished 56,567 acres of reforestation and 33,841 acres of forest vegetation

improvement. These accomplishments were 3,912 acres (7 percent) and 12,000 acres (55 percent), 

respectively, above targeted accomplishment levels. A significant component of the reforestation 

accomplishment in FY 2009 was certification of natural regeneration. The lower unit costs associated 

with certification of natural regeneration facilitated accomplishment of additional acres of high priority 

forest vegetation treatments to meet forest health objectives while exceeding reforestation objectives 

associated with these funds.
FY 2011 Budget Justification USDA Forest Service

Trust Funds 15-10

Authority

Recreational Boating Safety and Facilities Act of 1980, Title III, as amended (16 U.S.C. 1606a(d)) P.L. 

96-451. 

Program Overview

A maximum of $30,000,000 is transferred to the Reforestation Trust Fund by the U.S. Treasury each 

fiscal year to reduce the backlog in reforestation and timber stand improvement work. Reforestation 

activities include site preparation and planting of tree seedlings plus various treatments to improve initial 

seedling survival rates. Benefits of reforestation include restoration of forest vegetation impacted by 

wildfire, floods, and hurricanes to reestablish carbon sequestration capacity and establishment of forest 

vegetation resilient to the effects of climate change. Forest vegetation improvement activities include 

release treatments through removal of competing vegetation; precommercial thinning to regulate stand 

density, composition and structure; pruning treatments that reduce ladder fuels and improve future wood 

product quality; and fertilization treatments to maintain and improve soil productivity. Benefits of forest 

vegetation improvement include improved forest health and productivity; hazardous fuel reductions;

improved forest resiliency to the impacts of drought, insects and disease; and diversified wildlife habitat. 

In addition, forest vegetation improvement generates woody biomass that is available to meet renewable 

energy needs.

Allocation and Integration

Funds are allocated based on acres of reforestation or forest vegetation improvement need, acres of 

reforestation need created by wildfires and other natural events during the previous three years, and prior 

year accomplishments. Allocation decisions consider the combined accomplishment from the National 

Forest System - Vegetation and Watershed Management budget line item and the Reforestation Trust 

Fund program. These funds are used in conjunction with other vegetation management funds to provide 

an integrated, effective means of accomplishing forest health restoration, maintenance, or improvement 

under a variety of ecological and biological conditions. 

Partnerships

Partnerships in reforestation are critical for program accomplishments. Several key reforestation partners 

are American Forests, the National Forest Foundation, the Arbor Day Foundation, and the Batesville 

Casket Company. Combined, these partners enable the accomplishment of about 10,000 acres of 

planting.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-1

Special Exhibits 

1 ARRA Economic Recovery.......................................................... 16-2

2 Centralized Business Services ...................................................... 16-7

3 Chief’s Reserve Fund ................................................................. 16-9

4 Climate Change ........................................................................ 16-12

5 Conservation Education ............................................................... 16-16

6 Cost Pools .............................................................................. 16-18

7 Deferred Maintenance and Asset Management................................... 16-25

8 Facilities Maintenance Assessment ................................................. 16-29

9 Fire Transfers ........................................................................... 16-32

10 Knutson-Vandenberg (K-V) Financial Status ..................................... 16-33

11 National Scenic and Historic Trails .................................................. 16-34

12 Office of General Counsel Reimbursement ........................................ 16-38

13 Office of Tribal Relations ............................................................ 16-39

14 Partnerships ............................................................................. 16-40

15 Reforestation ............................................................................. 16-46

16 Rehabilitation of Burned Areas...................................................... 16-49

17 Research and Development Threat Assessment Centers ......................... 16-51

18 Service First .............................................................................. 16-54

19 Sustainable Operations ................................................................ 16-56

20 Unobligated Balances .................................................................. 16-58

21 USDA Working Capital Fund and Greenbook Charges ......................... 16-60

22 Wood Education and Resource Center ............................................... 16-74

23 Working Capital Fund - Forest Service .............................................

24 Working Capital Fund - Forest Service Fleet Management.......................

16-76

16-77
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-2

ARRA - Summary of Recovery Act Funding

Fund Code & Activities

Capital Improvement and Maintenance (CRRR) FY 2009

($1000)

FY 2010

($1000)

FY2011

($1000)

Allocation $647,825 $2,175 0

Obligation $115,297 $534,703 0

Outlays $22,043 $465,457 $162,501 

Road Maintenance & Decommissioning

Trail Maintenance & Decommissioning

Facilities Improvement, Maintenance & Renovation

Abandoned Mine Remediation

Watershed Restoration/Ecosystem Enhancements

Management & Administration Economic Recovery CIM

Wildland Fire Management (WRRR) FY 2009

($1000)

FY 2010

($1000)

FY2011

($1000)

Allocation $496,569 $3,431 0

Obligation $223,795 $276,205 0

Outlays $27,774 $422,226 $50,000 

Hazardous Fuels Federal Lands

Hazardous Fuels Reduction and Mitigation – S&PF

Rehabilitation Federal Lands

Ecosystem Improvement Non-Federal Lands

Forest Health Federal Lands

Forest Health Non-Federal Lands

Management & Administration Economic Recovery WFM

Wood to Energy Biomass, Federal

Wood to Energy Biomass, S&PF

Estimated Job Creation 2,000 18,000 0

A. Goals and Coordination Efforts: The major purposes of the American Recovery and 

Reinvestment Act of 2009 (ARRA) are to create jobs and promote economic recovery, especially 

to those areas most affected by the recession. Projects receiving ARRA funding will create or 

retain jobs in economically-distressed areas, create or retain jobs that help sustain the health, 

diversity and productivity of the Nation’s forests and grasslands, and create jobs that contribute to 

sustainable operations, including reducing the footprint of infrastructure and/or greening

operations of administrative and recreation sites, roads, trails, fire, and other facilities.

B. Objectives: The Forest Service received funding for Capital Improvement and Maintenance 

(CIM) and Wildland Fire Management (WFM). The objective of the Forest Service’s CIM 

program is to restore infrastructure that supports public, administrative, and recreation uses with 

minimal impact to ecosystem stability and conditions. The focus of the Forest Service’s WFM 

projects is to protect communities from large, unnaturally severe fires, and to contribute to the 

restoration of fire-adapted ecosystems, thereby helping to foster fire-adapted communities well 

into the future.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-3

C. Delivery Schedule:

Release Date Release Name

Estimated Amount to 

Accomplish ($1000)

CIM 

3/5/2009 

First 10% 

$95,545

WFM 

3/10/2009 

5/7/2009 Hazardous Fuels $223,694 

5/15/2009 Invasive Species $38,057 

6/2/2009 

Roads and Related Ecosystem/Watershed 

Enhancement $228,481 

6/16/2009 Biomass and Wood-to-Energy $56,929 

7/7/2009 Abandoned Mine Lands $19,884 

7/22/2009 

Facilities and Trails and Related 

Ecosystem/Watershed Enhancement $274,052 

8/18/2009 Additional CIM and WFM Funding $94,643 

9/9/2009 Forest Health $89,322 

Grand Total $1,120,607 

Allocated Management/Oversight $23,787.10

Unallocated ARRA Funds (will be allocated in FY 2010) $5,606.10 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-4

D. Measures: 

(1) Performance of Delivery: OMB guidance addressing the ARRA notes that agencies should ensure 

that progress can be tracked against certain accountability measures related to the proper delivery of 

funds. The Forest Service is ensuring that it has the capacity to track funds, in coordination with the 

Department of Agriculture, as necessary. To the extent possible, the Forest Service will make use of 

existing measures of performance and monitoring to ensure that its performance goals are being 

tracked and met. As stated in OMB’s direction, in addition to reducing the burden on grant recipients 

and contractors, the use of existing measures will allow the public to see the performance impact, in 

terms of change against present performance levels, of ARRA investments.

(2) Performance measures for program progress: The Forest Service will evaluate the success of 

activities funded through the ARRA using the following performance measures:

Key Programmatic Performance Measures

Goal Agency

Two-Year Expectation

Acres of water or soil resources protected, maintained or 

improved to achieve desired watershed conditions 1,800

Miles of road decommissioned 100

Miles of system trail maintained or improved to standard 2,800

Abandoned mine land sites mitigated 30

Miles of system roads receiving maintenance 1,400

Expected annual energy savings as a result of ARRA facility 

investments as estimated by the awarded contractor, or as 

estimated using a reputable energy savings calculator

$1,500,000

Expected annual operation and maintenance cost increase or 

decrease as a result of ARRA facility investments – (a negative 

number for savings, and a positive number for an increase) -$1,680,000

Number of acres treated to reduce the risk of catastrophic 

wildland fire 392,850

Acres of forest vegetation established or improved 810

Number of priority acres treated annually for invasive species or 

native pests 1,254,452

Number of hazardous fuels reduction or mitigation projects 

conducted on non-federal lands through Recovery Act funding 80

Green tons of biomass removed through Recovery Act grant 

funding to produce energy 5,197,410

(3) Additional Performance Measures related specifically to the ARRA: The Forest Service may add 

additional measures to track performance related to the specific goals of the ARRA. The ARRA 

requires recipients of ARRA funds from a Federal agency to report on (1) the total amount of ARRA 

funds received from that agency; (2) the amount of recovery funds received that were expended or 

obligated to projects or activities; (3) a detailed list of projects or activities for which ARRA funds 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-5

were expended or obligated, including (A) the name of the project or activity; (B) a description of the 

project or activity; (C) an evaluation of the completion status of the project or activity; (D) an 

estimate of the number of jobs created and the number of jobs retained by the project or activity; and 

(E) for infrastructure investments made by State and local governments, the purpose, total cost, and 

rationale of the Agency for funding the infrastructure investment with funds made available under 

this Act, and the name of the person to contact at the Agency if there are concerns with the 

infrastructure investment; and (4) detailed information on any subcontracts or subgrants awarded by 

the recipient to include the data elements required to comply with the Federal Funding and 

Transparency Act of 2006. 

E. FY 2009 ARRA Accomplishments:

For an update of Forest Service ARRA accomplishments to date, please visit: 

http://fs.usda.gov/recovery Described below are two of the many Forest Service ARRA success 

stories from FY 2009:

ARRA Funds Go to Improving National Recreation Area Facilities, Trails, and Biomass Projects

Land Between The Lakes (LBL) National Recreation Area in Golden Pond, Kentucky was severely 

impacted by a two-day ice storm in January 2009. The extremely hazardous conditions resulted in 

closing LBL to visitors. American Recovery and Reinvestment Act (ARRA) funded projects provided 

the area with timely relief, minimizing the impact to the local economy.

With ARRA funds, LBL was able to employ several local logging companies, through a stewardship 

partnership agreement with the National Wild Turkey Federation, to clear roads and remove downed 

trees. Also, students from the Golconda Illinois Job Corps Urban Forestry program assisted with 

cleanup from the ice storm. Without this funding, it was unlikely facilities would have been 

operational for the tourism season, causing more hardship to local communities already economically 

distressed and hit hard by recent manufacturing plant and retail store closings. After the initial 

funding was received for the storm damage, a few more projects were also approved. Altogether, 

LBL has received a total of $6.5 million in ARRA funding for capital improvement and maintenance, 

two biomass plants for local communities, two campground wastewater treatment plants, trail bridge 

replacements, and trail reconstruction work. Contractors have already completed work and will 

continue to work on debris removal, facility repairs, road clearing, and future construction projects 

providing local economic benefits. So far, 63 jobs have been created ranging from contracted labor to 

road inspectors.

"The LBL projects selected for funding will keep key public recreation facilities safe and enjoyable, 

while providing jobs in our local economy," commented Bill Lisowsky, LBL Area Supervisor.

Hazardous Fuels Reduction in Michigan

In the middle of tough economic times for Crawford, Oscoda, Alcona and Iosco counties in 

northeastern Michigan, the American Recovery and Reinvestment Act (ARRA) has brought $3.871 

million to the area in funding for the Huron Fuels Reduction Project. The purpose of the Huron Fuels 

Reduction Project is to reduce wildland fire hazards on the public lands of the Huron National Forest. 

To help accomplish this objective, a Fuels crew of 51 new employees has been hired by the Huron 

Shores and Mio Ranger Districts of the Huron National Forest.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-6

The vast majority of the crew members are local northern Michigan community members who were 

either unemployed or underemployed prior to being hired. The crew will return to work again in the 

spring of 2010 and will work through the end of September. Although these are temporary positions, 

the majority of crew members are positive about their experience and especially for the opportunity to 

have a job that allows them to stay in northern Michigan and provide for their families.

F. FY 2010 Planned ARRA Accomplishments: (sample project described below)

ARRA Funding Creates Forest Products Industry Jobs for the Mescalero Apache Tribe

Three significant projects involving the Mescalero Apache Tribe in 

Lincoln and Otero Counties on the Lincoln National Forest in New 

Mexico are made possible through ARRA funding. The three projects 

create jobs, develop workforce skills, provide workforce training, and 

support new infrastructure and business in the area (a wood pellet mill, 

a power generation facility, and a re-engineered mill). The projects 

will create or protect 100 jobs over the next two years. Partners for the 

projects include the Tribe, the DOI’s Bureau of Indian Affairs, and the 

State of New Mexico.

One project continues work that was started under Tribal Forest 

Protection Act (TPFA) authorities. It improves forest health while 

reducing hazardous fuels and associated fire risk to Tribal lands, the 

community of Sixteen Springs, and the village of Ruidoso; rated the 

most at-risk community in New Mexico and number two on the list of 

most at-risk communities in the nation. The project provides 

specialized employment in harvesting, transporting, and processing 

commercial saw logs and small diameter biomass. Currently, the 

commercial saw logs provide jobs at small, local sawmills and a pallet 

mill in El Paso, Texas. The project is generating small diameter 

biomass that will provide raw material for a new wood pellet mill, 

currently under construction.

In the future, the biomass will provide the Mescalero Apache Tribe material to operate a six megawatt 

power generation facility. The project, which is expected to create 44 jobs, will enhance the tribe's 

ability to fully utilize biomass material from both Tribal and National Forest System lands, and will

have a cascading effect on maintaining and creating jobs within local Tribal communities and area 

municipalities.

The Mescalero Apache Forest Products sawmill, closed since January 2009, is the last remaining 

large scale infrastructure to process woody biomass in southern New Mexico. Funds will be used to 

re-engineer the mill to process smaller diameter material, develop and improve business management 

systems and capabilities through training and improving workforce skills, and improve worker safety 

through modernization. The project will help the mill become more economically stable and return 

laid-off workers to meaningful, family-wage employment.

Forest health improvement projects 

in New Mexico reduce hazardous 

fuels and fire risk to wildlandurban-interface areas.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-7

Centralized Business Services

In 2003, the Forest Service began to centralize its business management programs through a series of 

business process reengineering efforts. The goals were to improve service, streamline business 

processes and modernize procedures, and to reduce costs in order to redirect funds to mission critical 

priorities. The following programs were centralized: 

• The Chief Information Office, which improved the quality and efficiency of the Agency’s 

technology services 

• Financial Management Improvement Project (FMIP), which standardized and centralized many 

of the Forest Service’s Budget and Finance (B&F) processes

• Human Resources Business Process Reengineering (HR BPR), which standardized and 

centralized Human Resources processes and included a new integrated department-wide Human 

Resources Information System (HRIS). 

These program areas are under the leadership of the Deputy Chief of Business Operations. Although 

the program offices are headquartered in Albuquerque, New Mexico, many facets of the organizations 

are located virtually throughout the agency to provide for the most efficient services to field units. 

Budget and Finance

Budget and Finance standardized and centralized many of the agency’s budget and finance processes. 

Migration of staff and duties to the Albuquerque Service Center (ASC) Budget & Finance was 

completed in FY 2006. The Budget and Finance organization at the Albuquerque Service Center 

functions as a service-wide center for the performance of finance and budget functions.

The major functional areas represented at the ASC Budget and Finance are: 

o Claims, Payments & Travel

o Budget Execution, Quality Assurance and Program Support (within the Program Support 

Branch are the Contact Center, Technology Support Group and Admin Group)

o Financial Reporting & Reconciliation

o Accounting Operations

The ASC Budget and Finance Vision

The ASC will be a professional, award-winning organization that will add value to the pursuit 

of the Forest Service mission by: 

• Meeting and/or exceeding all financial compliance requirements and transaction processing 

commitments 

• Demonstrating its passion for providing excellent service to internal and external customers 

• Acting as a professional business partner to provide strategic advice and counsel to Forest 

Service management and employees 

• Creating a positive, challenging, and desirable work environment for ASC employees to grow 

and excel 

• Pursuing continuous improvement to realize cost-efficient operation
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-8

Chief Information Office

The Chief Information Office centrally manages the agency’s information technology functions. 

The centralization of the organization facilitates:

1) More efficient technologies and processes at the field level

2) Streamlining and technological upgrades

3) One central location, contact center, and helpdesk services for the organization

CIO Vision

An accepted, integrated, business-driven process that cost-effectively provides essential information 

and services to support sound decisions and activities:

• To the right people 

• In the right form 

• At the right time

Human Resources Management

The Forest Service’s Human Resources BPR was announced in 2004, started in 2006, and was 

initially scheduled to be completed in 2010. In 2009, Agency leadership examined HR program 

direction, service delivery design, and progress toward the goals in order to determine the next steps 

for continuous improvement. In December 2009, the National Leadership Council made a number of 

decisions to improve operations in these areas and streamline practices. The final implementation 

plan is scheduled to be approved in March 2010. 

The HR program mission is to provide value to the Agency by delivering efficient and effective HR 

programs and services. The HR vision is to be the “human resources service provider of choice”.

The organization provides agency-wide services in the following areas:

Employment Services Pay and Benefits

Classification Performance and Awards

Homeland Security HSPD-12 Quality Assurance and Service Management

Human Resource Policy Worker’s Compensation Programs

Employee and Labor Relations Contact Center and Helpdesk Services

Workforce Planning Workforce Development

Customer Relations Human Resource Information System
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-9

Chief’s Reserve Fund

Description

The Chief’s Reserve Fund (CRF) is managed in the Chief’s Office to fund emergencies or unforeseen 

events that occur throughout the fiscal year. This reserve fund allows units to respond quickly to 

unplanned urgent work without impacting the planned program of work. 

(Dollars in thousands)

FY 2009 Funding FY 2010 Funding FY 2011 Budget

$7,000 $7,000 $7,000

FY 2010 Program Approved

Forest & Rangeland Research $ 310,000

Forest Health Management-Cooperative Lands 140,000

Forest Health Management-Federal Lands 210,000

State Fire Assistance 157,500

Forest Stewardship 87,500

Urban & Community Forestry 70,000

Land Management Planning 280,000

Inventory & Monitoring 560,000

Recreation, Heritage, & Wilderness 630,000

Wildlife & Fisheries Habitat Management 350,000

Grazing Management 140,000

Forest Products 630,000

Minerals & Geology Management 175,000

Vegetation & Watershed Management 630,000

Landownership Management 280,000

Law Enforcement Operations 145,000

Hazardous Fuels 280,000

Preparedness 530,000

Suppression 450,000

Facilities 420,000

Roads 280,000

Trails 175,000

Infrastructure Improvement 70,000

TOTAL $ 7,000,000

Oversight/Administration

At the Chief’s discretion, funds from this reserve are available for unplanned and/or emergency 

circumstances. Requests are evaluated against criteria including 1) the urgent nature of the event, 2) 

relevance of proposed use to priorities, 3) other funding source considerations, and 4) risks from 

being unfunded. Requests must be for work or projects exceeding $25,000. Initial fund mixes are 

determined at the beginning of the fiscal year, but may be remixed during the year to meet 

unanticipated needs. Funds are only spent in accordance with the purposes for which they were 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-10

appropriated. Unused funds are distributed to the Regions, Stations, and Area as carryover in the 

following year.

Program Uses

In FY 2009, CRF funds were approved for some unplanned projects. Total program amounts 

assessed and obligated in FY 2009 are illustrated in the table below.

FY 2009 Program Approved Obligated

Forest & Rangeland Research 310,000

Forest Health Management-Cooperative Lands 140,000

Forest Health Management-Federal Lands 210,000

State Fire Assistance 157,500

Forest Stewardship 87,500

Urban & Community Forestry 70,000

Land Management Planning 280,000

Inventory & Monitoring 560,000

Recreation, Heritage, & Wilderness 630,000 485,000

Wildlife & Fisheries Habitat Management 350,000 276,336

Grazing Management 140,000

Forest Products 630,000 380,000

Minerals & Geology Management 175,000

Vegetation & Watershed Management 630,000 176,336

Landownership Management 280,000

Law Enforcement Operations 145,000

Hazardous Fuels 280,000

Preparedness 530,000

Suppression 450,000

Facilities 420,000

Roads 280,000

Trails 175,000

Infrastructure Improvement 70,000

TOTAL 7,000,000 1,317,672

Projects funded by the Chief’s Reserve Fund in FY 2009 include: 

• Funding to cover the costs for Security Guard Services at the Yates Building. Prior to May 

2008, USDA provided security officers for the Yates Building without requiring 

reimbursement. In May 2008, GSA took over the operations and maintenance of the Yates 

Building. Since this time, the Forest Service has been required to reimburse USDA the 

monies allocated via the USDA Security contract. The Forest Service is required to maintain 

guard service in the Yates Building under Federal Regulations for Government-owned 

facilities; therefore, we have maintained the USDA Security contract, which requires 

reimbursement to USDA on a fiscal year basis. ($634,481)

• Funding for tax escalation for June and July 2009 on the GSA/DHS lease for the Forest 

Service offices in Rosslyn. The increase was an unforeseen and unplanned agency cost. 

($98,191)
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-11

• Funding for land acquisitions in Region 3. The cumulative effect of higher than anticipated 

costs for acquisitions created a need for additional money to complete the Congressionallyapproved Packard Ranch acquisition. ($585,000)
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-12

 Climate Change

Background

Broad scientific consensus confirms that global climate change is real and that the impacts are 

dramatically altering forests and grasslands and the goods and services they provide. Many of the 

most urgent forest and grassland management problems of the past 20 years – wildfires, changing 

water regimes, and expanding forest insect infestations – have been driven, in part, by changing 

climate; future impacts are projected to be even more severe. America’s forests and rangelands are 

critical components of the Nation’s response to climate change. Managing them to better adapt to 

both current and future climates will help ensure that forests continue to produce needed goods and 

services, including carbon sequestration, which advances efforts to reduce global warming.

Each of the agency’s deputy areas – National Forest System (NFS), State and Private Forestry 

(S&PF), Research and Development (R&D), and Business Operations – are developing and 

implementing strategies to advance adaptation (developing ecosystems and infrastructure resilient to 

climate change) and mitigation (reducing greenhouse gas emissions and sequestering carbon that 

contributes to global warming). 

The Forest Service (FS) has a long history of managing ecosystems to restore, maintain, and enhance 

their health and resilience to stress; therefore, many current FS management activities are 

appropriately addressing forest health decline, but now must be viewed through a climate change 

lens. Forests and grasslands will experience regional and local changes in temperature and 

precipitation, and are likely to more frequently face extreme weather events, such as droughts, floods, 

storms, and heat waves. Increased stresses from diseases, insects and invasive plants are also 

expected. 

Responding to Climate Change

The Forest Service is developing a strategy to help set priorities and inform decisions in sustaining 

forest and grassland resources. The strategy will be based on 20 years of targeted research and a 

century of science and management experience on public and private forest and rangelands. Forest 

Service research and management experience has produced highly skilled and experienced land 

managers, internationally recognized forest and range scientists, and a body of peer-reviewed 

scientific information for developing responses to climate change. The Forest Service is currently 

addressing climate change in the following ways:

Adaptation – Managing Forest, Range and Urban Landscapes to Be Resilient to Climate 

Change 

The Forest Service will restore, maintain, and enhance the health and resilience of forest, 

range, and aquatic ecosystems to adapt to the stresses created by climate change. This 

involves practices that can include: (1) thinning forests that are highly vulnerable to wildfire, 

insect, and disease mortality; (2) other pest and disease control measures; (3) controlling 

invasive species; (4) wetland and stream restoration; (5) assisted species migration; and (6) 

relocating, redesigning, and managing infrastructure and human uses. The Forest Service 

applies such measures directly to the 193 million acres of NFS lands and also works 

cooperatively with partners to improve the health and productivity of priority landscapes in 

the US, as well as forests around the globe, by providing information, technical assistance, 

and targeted grant programs. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-13

Many national forests and grasslands across the country are developing specific climate 

change adaptation plans. Of the 54 NFS units1 that have recently developed or revised their 

land management plans, one-third consider climate change impacts in their plans. Chief 

Tidwell issued a memo on November 20, 2009, to Deputy Chiefs, Regional Foresters and the 

Directors of research stations, the Northeastern Area, the International Institute of Tropical 

Forestry, and headquarters staffs, directing them to jointly develop plans for five specific 

geographic areas and major landscapes that span the country to integrate NFS management, 

research and development, and technical assistance to partners for landscape conservation. 

Draft inter-deputy plans are due by March 1, 2010. A small dedicated climate change staff is 

being proposed to coordinate FS climate change activities.

The FS Urban & Community Forestry Program is assisting city managers, planners, and 

community groups to strategically locate trees to reduce the urban heat island effect, thereby 

lowering projected climate change temperature increases and associated heat-related illness 

and death. Homeowners are applying urban forestry research information to locate trees to 

ameliorate their cooling costs resulting from higher temperatures; such actions can also 

mitigate adverse effects resulting from altered rainfall patterns.

The FS R&D Program provides the science understanding and tools needed to implement 

new resource management practices that will result in ecosystems better adapted to current 

and future climate scenarios. In addition, tools are being developed to identify and prioritize 

management efforts on the most vulnerable and ecologically and economically important 

ecosystems, species, and infrastructures. For species that appear unable to adapt to climate 

change or migrate to areas with suitable climates, agency-wide gene conservation plans are 

being coordinated by the Forest Health Protection staff. 

Mitigation – Managing Forests to Decrease Net Greenhouse Gas Emissions 

Anthropogenic causes of climate change involve the release of carbon and other greenhouse 

gases into the atmosphere, and land management options are a primary way of removing 

carbon from the atmosphere. The Forest Service will manage resources to increase net carbon 

sequestration in forests, rangelands, and urban areas over time through a variety of means, 

such as: (1) rapidly reforesting NFS stands damaged by fires, hurricanes, and other 

catastrophic events; (2) providing technical assistance to national, international, regional, and 

State climate action programs to enhance carbon sequestration potential through afforestation, 

reforestation, and/or practices that increase and maintain productivity and ecosystem health

over the long-term; (3) encouraging cities to plant more trees; (4) facilitating demonstration 

projects leading to development of markets for ecosystem services, such as carbon 

sequestration. FS R&D and research partners provide the tools that land managers use to 

estimate the amount of carbon that can be sequestered for various management options; this 

information can then be used to balance carbon sequestration with other ecosystem services. 

Through the Forest Inventory and Analysis (FIA) program, the FS tracks changes in carbon 

stocks on forests throughout the country and provides the official national annual estimate of 

GHG emissions and sequestration from forests as part of the United States reporting 

commitment to the United Nations Framework Convention on Climate Change.

Forest products can also be used to reduce and replace fossil fuel use, thus providing 

additional mitigation effects, as well as economic and other critical benefits. The Forest 

 1 A national forest unit can include a single or multiple national forests and grasslands managed jointly under 

the delegated authority of a single Forest Supervisor and programmatic guidance of a single land and resource 

management plan. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-14

Service provides research, technical assistance, and targeted grant programs to foster (1) 

substitution of wood-based building products for energy-intensive materials (such as steel and 

concrete); (2) more use of excess and waste wood from forests and urban areas as renewable 

sources of heat, power, and transportation fuels; and (3) development of cost-competitive 

wood-based liquid transportation fuels and chemicals to reduce fossil fuel use.

Science – Strengthen Expertise within the FS Research & Development Program

FS R&D builds on existing expertise in areas such as landscape ecology, watershed 

hydrology, vegetation modeling, nutrient cycling, and forest management. Long-term data 

from the Forest Inventory and Analysis (FIA) plots across the Nation, the Forest Service 

network of Experimental Forests and Ranges, and Research Natural Areas provide both a 

baseline on forest composition and stocking resulting from past climate and management and 

a valuable network of sites to monitor effects of future climate. The Global Change Research 

Strategy for 2009-2019 (http://www.fs.fed.us/research/climate/strategy.shtml) focuses on 

forest adaptation, climate mitigation, and decision support tools for managers. Specific 

research areas of concern include monitoring and modeling of carbon cycling in forests, 

management techniques for enhanced carbon sequestration, research to enhance ecosystem 

sustainability, improved methods to estimate carbon in ecosystems, and new processes for 

biofuels and bioenergy.

Sustainable Operations – Reducing the Agency’s Environmental Footprint

The Forest Service is establishing an energy baseline for its operations in order to conform 

with legislation and executive orders requiring: increased energy efficiency; measurement, 

reporting, and reduction in greenhouse emissions; conservation and protection of water 

resources through efficiency, reuse, and stormwater management; elimination of waste, 

recycling, and pollution prevention; green purchasing; construction and use of green

buildings; and sustainable operations leadership. The Forest Service is a member of the EPA 

Climate Leaders Program, an EPA-led industry-government partnership that works with 

companies to develop comprehensive climate change strategies.

(http://www.epa.gov/climatechange)

Education – Advancing Awareness and Understanding

Citizens knowledgeable about climate change and its impacts on ecosystems will be better 

prepared to participate in decisions and actions affecting their Nation’s forests, grasslands, 

and urban environments. The Forest Service, in partnership with other organizations, is 

uniquely positioned to provide high-quality, science-based education and outreach to 

employees and to the public on the role of forests and grasslands in delivering critical 

ecosystem services amidst a changing climate. Educational materials are currently available 

via the web and other traditional forms of publication through FS R&D and FS Conservation 

Education programs.

Federal Partnerships

The Forest Service coordinates its climate science strategy and research activities with other Federal 

science providers. Much of the coordination comes through participation in the U.S. Global Change 

Research Program that was established as a Presidential initiative in 1989 and was mandated by 

Congress in the Global Change Research Act of 1990. The Forest Service also works closely with 

specific partners when strategic research goals are shared. Examples include: working with the 

United States Geological Survey in conducting the carbon assessment mandated under Section 712 of 

the Energy Independence and Security Act, working with the Environmental Protection Agency in 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-15

providing estimates of U.S. greenhouse gas emissions to the United Nations Framework Convention 

on Climate Change, and participating in the EPA Climate Leaders Program. Other efforts include 

developing competitive research proposals (RFPs), climate science education efforts, and specific 

climate science projects among individual scientists from different agencies.

Climate Change Investment

Over the past two fiscal years, significant funding has been invested in climate change research and 

management activities. The FS will submit a report describing in detail all obligations and 

expenditures, both domestic and international, for climate change programs and activities in fiscal 

year 2009 and fiscal year 2010. The report will be submitted to the Appropriations Committees of 

both the House and the Senate 120 days after the President’s Budget Justification is submitted to 

Congress, as directed in the FY2010 appropriations bill.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-16

Conservation Education

Program Overview

The Forest Service (FS) connects more than four million people each year with nature and public 

lands through its Conservation Education (CE) program. Conservation Education teaches people 

about natural resource management and gives them tools to make informed decisions and take action 

to sustain natural and cultural resources. CE efforts provide a full range of educational experiences, 

beginning with awareness, knowledge, and building toward engagement, commitment, and action. CE 

programs are delivered by a network of land managers, scientists, educators, and interpreters 

representing all branches of the agency, and are supported by extensive partnerships with nongovernmental organizations, State and local agencies, and other educational institutions. Learning 

experiences include outdoor recreational and interpretive activities, formal structured school-based 

programs that support local standards of learning, capacity building for educators, and servicelearning projects. Some of the CE program focal areas include invasive species control, fire and 

hazardous fuel treatment, and open space conservation. CE programs focus specific educational 

efforts on children (pre-k through 12th grade) and their educators in classroom and non-formal 

settings.

In FY 2011, CE will continue to use the National Guidelines for Excellence as a guide to develop new 

programs and materials, and to evaluate existing agency programs and materials. The program will 

play a leading role in Forest Service celebrations of the United Nations Year of Forests in 2011. 

Technology will be used to enhance program delivery for distance learning and web-based education 

tools. CE’s internet presence will be strengthened with improved information technology to enhance 

communication, networking, and accomplishment reporting. These tools, along with environmental 

stewardship activities, will strengthen environmental awareness and knowledge, and citizen 

involvement in sustainable resource management. Partnerships will be leveraged to provide 

educational expertise, teacher training, supplemental curriculum materials, and connections to our 

customers, and to effectively engage urban and underserved communities.

FY 2011 Program of Work 

Past Performance

In 2009, the “More Kids in the Woods” competitive funding program enhanced learning experiences 

for more than 20,000 children. For example, the Forest Service connected with urban underserved 

youth through the Latino Legacy program on National Forests and Grasslands in Texas. Additionally, 

in partnership with the Girl Scouts of America, the program engages thousands of girls from rural and 

urban underserved communities in leadership projects, stream bank restoration, and outdoor skills 

development. 

Conservation Education is one of the most broadly integrated programs in the agency and operates 

with an “all lands” approach. The CE program in the Washington Office supports the “field” in the 

implementation of agency and Departmental priorities. At the forest and region/station/area levels, 

conservation education efforts are funded through more than a dozen agency programs including 

Recreation, Heritage, and Wilderness; Wildlife, Air, and Rare Plants; Forest and Rangeland Research; 

Forest Health Management; Urban and Community Forestry; Hazardous Fuels; and Wildfire 

Prevention. 

Allocation and Integration 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-17

Partnerships

Partnerships are critical to the success of Conservation Education in the Forest Service. More than 

2,500 individual organizations at the national, State, and local levels help to ensure that our 

Conservation Education efforts meet local needs and more than double the agency’s investment of 

resources each year. The Washington Office creates and nurtures nationwide partnerships that provide 

technical assistance to our vast network of providers across the agency and improve our outreach to 

diverse, underserved, and urban populations.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-18

Cost Pool (both Direct and Indirect) Totals

Background

The Forest Service has had a continued commitment towards reducing indirect costs since the 

centralization of the Forest Service administrative functions at the Albuquerque Service Center. The 

centralization included the Budget and Finance, Chief Information Officer (IT), and the Human 

Resource Management (HRM) functions. These centralized functions support and service the entire 

Forest Service. This centralization of administrative functions was designed to 1) improve the overall 

efficiency of the Forest Service’s administrative operations, 2) increase the Forest Service’s ability to 

meet the needs of its internal and external customers, and 3) redirect critical funds from indirect or 

administrative functions back to direct and/or mission critical programs.

In the past, the Forest Service budget justification only discussed and displayed the indirect portion of 

cost pools in Appendix A. The Appropriations Act now requires reporting total cost pool estimates 

including both direct and indirect cost pools. 

The FY 2011 Total Cost Pool Estimate of $1.057 billion is a reduction of 2.9% from the planned FY 

2010 level of $1.089 billion. The FY 2011 estimate highlights $32 million in efficiency savings 

resulting primarily from IT and administrative services that are funded from cost pools. An 

additional estimated efficiency savings of $20 million will be realized, outside of cost pools, as 

follows: 1) $10 million in the Wildland Fire account resulting from efficiencies in procurements for 

fire incidents - cost avoidance related to pre-season activity, and 2) $10 million from efficiencies 

related to reduced workman’s compensation costs at the field level resulting from better case 

management of worker claims. Pressures to contain or lower cost pools are from relatively flat 

appropriations and budget requests, concerns over administrative and indirect costs, and a target to 

achieve efficiency savings in FY 2011. However, this level of cost pool funding will create 

challenges for the agency to address radio, network, and data systems, as well as other national issues. 

In addition, cost pools include several years with flat regional cost pool caps that have not kept up 

with pay cost and inflation. 

General Policy

Appropriate application of cost pools allows the Forest Service to accurately reflect the cost of doing 

business in compliance with the Federal financial reporting standards articulated by the Federal 

Accounting Standards Advisory Board (FASAB). Accurately reflecting the true cost of doing 

business improves the Government's ability to account for public funds; provides information for 

evaluating agency costs, accomplishments, and impacts of accomplishments; and provides a basis to 

assess agency financial systems and controls.

The Forest Service receives appropriations by program, and does not receive a general administration 

or management appropriation. Cost pools are used for expenses that cannot reasonably be charged 

directly to a single program. The cost pools are designed to maintain accurate reporting of the true 

costs by program, by having each program contribute into the cost pools an amount based on its share 

of indirect, support, and common services charges.

To effectively manage, fund, and account for total cost pool costs, the Forest Service continues:

• Using the cost allocation methodology for distributing costs to budget line items;

• Using cost pools to capture similar costs by category;
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-19

• Annually updating cost allocation directions;

• Monitoring cost allocation data, cost pool transaction and accounting adjustments, and/or program 

changes to maintain financial integrity; and

• Conducting cost allocation compliance reviews at region, station, area, and national forest levels.

Cost Pool Policy Review

The purpose of the cost allocation compliance reviews is to determine the consistency in which the 

field organization and the Washington Office (WO) headquarters implement cost-pool policy and to 

identify areas for improvement. The agency uses the information gathered from the reviews to 

improve the cost allocation process and update cost allocation directions for the following fiscal year.

Direct, Support, and Indirect Costs

Forest Service definitions of direct and indirect costs are consistent with FASAB Statement #4. The 

agency published the definitions in the FY 2000 Budget Justification. The Department of Agriculture 

Chief Financial Officer and the Office of Management and Budget cleared, and the Government 

Accountability Office, United States Department of Commerce’s Office of Inspector General and 

Office of General Counsel, and the Department of Justice reviewed the definitions prior to publishing.

Direct Costs - Direct costs are specifically identified with the delivery of a program or a program’s 

accomplishments. Direct costs include expenses associated with employees working directly on the 

production of an output. Program management is an integral cost of the production of an output and 

therefore is included as a direct cost. Direct costs might also include costs not associated with 

employees involved in the production of output(s), such as office and other facility space, computer 

equipment, and utilities, as well as materials, supplies, and equipment. Direct costs are generally 

charged directly to a single primary purpose budget line item.

Support Costs – Support costs, like indirect costs, are not traceable to any specific budget line item. 

However, they are associated with line management administering the program of work, as well as a 

limited set of nationally designated cross-cutting projects and activities. The cost allocation 

methodology distributes support costs to budget line items.

Indirect Costs - Indirect costs are costs that are necessary for the operation of the Forest Service as 

an organization but are not traceable to any specific outputs. These include Legislative and Public 

Communication, Ongoing Business Services, and Common Services.

Cost Pools 

For management and tracking purposes, categories of similar expenses are combined into five cost 

pools. Cost pools 1 and 2 are 100 percent support costs (direct cost pool), cost pools 3 and 4 are 100 

percent indirect, and cost pool 5 includes both indirect and direct components. Other cost pools (6 and 

7) track Office of Workers’ Compensation (OWCP) and Unemployment Compensation Insurance 

(UCI). Cost pool 9 collects facilities maintenance assessment funds. There is no cost pool 8.

Generally, the cost pools serve as an accounting tool, providing the Forest Service with financial data 

on categories of similar expenses. This permits the Forest Service to plan for and manage support, 

indirect and direct pool costs at different levels in the organization. A description of these pools and 

their associated costs are listed below. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-20

Cost Pool 1 - General Management: This cost pool includes salaries, associated employee benefits, 

and related costs for general line managers and officers (including secretarial staff) at the WO, 

Regions/Stations/Area (R/S/A), national forest, and ranger district levels. In addition, union officials, 

civil rights positions, and safety officers are included in Cost Pool 1 to show their direct connection 

and link to line management. Related costs include uniforms, travel, transfer of station, vehicles, cell 

phones, laptops, specialized supplies and equipment, and discretionary expenses associated with these 

positions. Cost pool 1 is entirely support costs and is based on direct full-time equivalents (FTEs) of 

total employees within the cost pool.

Cost Pool 2 - Direct Project Approved Activities: This cost pool includes salaries, benefits, and 

related costs for a limited set of nationally designated cross-cutting projects, currently limited to 

Conservation Education, Tribal relations, Freedom of Information Act (FOIA), Resource Advisory 

Council (RAC) administration, and Grey Towers. Cost pool 2 is entirely program support and is 

based on direct FTEs of total employees within the cost pool.

Cost Pool 3 - Legislative and Public Communications: This cost pool includes salaries, associated 

employee benefits, and related costs for general receptionists, public affairs, and legislative liaisons at 

the WO, R/S/A, national forest, and ranger district levels. Related costs include uniforms, travel, 

transfer of station, vehicles, cell phones, laptops, specialized supplies and equipment, and 

discretionary expenses associated with these positions. Cost pool 3 is entirely indirect costs and is 

based on direct FTEs of total employees within the cost pool.

Cost Pool 4 - Ongoing Business Services: Cost pool 4 includes salaries, associated employee 

benefits, and related costs for business operations at the WO, R/S/A, national forest, and ranger 

district levels. Business operations include budget, finance, acquisition, human capital management, 

some grants and agreements, and information resource management. Calendar year national burden 

rate (collected from external and cooperative agreements) is credited to cost pool 4 through the FFIS 

Purchase Cost Allocation System (PCAS). Cost pool 4 is entirely indirect costs and is based on direct 

FTEs of total employees within the cost pool.

Cost Pool 5 - Common Services: This cost pool includes rent, utilities, communications, equipment, 

supplies, radios, phones, and computer related expenses. Cost pool 5 consists of both indirect and 

direct pool costs. The distribution of costs in pool 5 is based on direct FTEs for permanent employees 

only; the division between direct and indirect costs is based on the ratio of direct to indirect 

employees. For example, if the common services for a unit with 100 employees, consisting of 80 

direct and 20 indirect, is $500,000, then $400,000 of these costs would be direct and $100,000 would 

be indirect.

Cost Pool 6 - Office of Worker’s Compensation Program (OWCP): This cost pool includes 

Office of Worker’s Compensation Program costs charged on a case-by-case basis. Therefore, the 

charges will vary in both indirect and direct pool costs. Costs are distributed based on the work being 

performed at the time of the injury. OWCP for indirect employees is an indirect cost and allocated 

based on direct labor hours. 

Cost Pool 7 - Unemployment Compensation Insurance (UCI): This cost pool includes 

Unemployment Compensation Insurance costs charged on a case-by-case basis. Therefore, the 

charges will vary in both indirect and direct pool costs. Costs are distributed based on the work 

performed while employed. UCI for indirect employees is an indirect cost and allocated based on 

direct labor hours (DLHs). 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-21

Cost Pool 9 - Facilities Maintenance Assessment Fund: This cost pool contains the Facilities 

Maintenance Assessment Fund. This is a direct cost pool used to allocate facilities maintenance work 

funded by assessing each R/S/A a charge based on gross square foot of facilities. These charges are 

then allocated by BLI using the same basis as cost pool 5 in compliance with the FY 2006 

Appropriations Act and accompanying conference report language.

Cost Allocations – General Overview

The Forest Service allocates support, indirect, and direct pool costs among programs through the cost 

allocation process, which assesses each Forest Service budget line item a certain percentage of total 

cost pool costs. Cost pools are generally allocated using direct labor hours (DLH). DLH are 

converted to full-time equivalents (FTEs); 1 FTE = 2,096 DLHs (the DLH number varies depending 

on the year). For cost pools 1-4, DLHs are used for all employees charging to direct costs (all 

employees includes those holding permanent, temporary, intermittent, and other types of positions). 

This is because these costs generally reflect the entire organization. For cost pools 5 and 9, only 

permanent employee DLHs are used, because these costs (rent, communication, utilities, etc.) are 

driven primarily by the need to support the permanent workforce. Planning estimates for cost pool 6 

are based on actual past cases for OWCP; and cost pool 7 is based on actual past cases for UCI. 

Because of their nature, the FTEs associated with supplemental, transfer, and emergency funds are 

dropped from the cost pools and are not used in calculating indirect costs.

The Forest Service uses cost allocation to charge expenses back to a single budget line item. Cost 

allocation is used for expenses that: 

• Are indirect (e.g., cost pool 4), 

• Simultaneously support multiple programs in a way that cannot be efficiently charged 

directly to a budget line item (BLI) (e.g., cost pools 1 and 2), 

• Involve multiple transactions that need to be summarized for payment purposes (e.g., cost 

pools 6 & 7), or

• Are otherwise directed by congressional or administrative action (e.g., cost pool 9).

Forest Service Cost Pool Exhibits

The Forest Service is providing the following cost pool exhibits on the following pages:

Exhibit 1 – Comparison of FY 2009 Planned versus Actual Indirect Costs, and FY 2010 

Estimated Indirect Costs by Budget Line Item

Exhibit 2 – Estimate of FY 2011 Total Cost Pool Assessments by Budget Line Item
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-22

(dollars in thousands)

 FY 2009 Actual

 Budget Line Item: Fund/Program 

FY 2009 

Enacted 

Budget

FY 2009 

Estimated 

Indirect 

Costs

FY 2009 

Actual 

Indirect 

Costs

Indirects 

as a 

Percent 

of BLI

Percent of 

Total FS 

Indirect 

Costs

FY 2010 

Enacted 

Budget

FY 2010 

Estimated 

Indirect 

Costs

Forest and Rangeland Research $296,380 $18,549 $17,860 6.0% 4.0% $312,012 $19,135

Subtotal, Research $296,380 $18,549 $17,860 6.0% 4.0% $312,012 $19,135

Federal Lands $54,110 $5,090 $4,901 9.1% 1.1% $57,282 $4,903

Cooperative Lands $46,292 $723 $696 1.5% 0.2% $48,573 $784

State Fire Assistance $35,000 $790 $761 2.2% 0.2% $39,147 $792

Forest Stewardship $27,000 $1,066 $1,027 3.8% 0.2% $29,369 $899

Forest Legacy $49,445 $297 $286 0.6% 0.1% $76,460 $378

Urban and Community Forestry $29,541 $677 $652 2.2% 0.1% $30,377 $693

Forest Resources Information and Analysis $5,000 $104 $100 2.0% 0.0% $5,035 $66

International Forestry $8,500 $269 $259 3.0% 0.1% $9,818 $302

Subtotal, State and Private Forestry $254,888 $9,016 $8,681 3.4% 2.0% $296,061 $8,817

Land Management Planning $48,833 $5,785 $5,570 11.4% 1.3% $45,917 $5,517

Inventory and Monitoring $167,580 $16,360 $15,752 9.4% 3.5% $170,502 $17,465

Recreation, Heritage, and Wilderness $277,635 $39,438 $37,974 13.7% 8.6% $285,117 $40,169

Wildlife and Fisheries Habitat Management $139,385 $16,676 $16,057 11.5% 3.6% $143,014 $17,155

Grazing Management $50,000 $7,480 $7,202 14.4% 1.6% $50,714 $7,442

Forest Products $332,666 $51,193 $49,292 14.8% 11.1% $336,722 $47,094

Vegetation and Watershed Management $180,437 $22,884 $22,034 12.2% 5.0% $187,960 $21,424

Minerals and Geology Management $85,470 $9,680 $9,321 10.9% 2.1% $87,240 $8,841

Landownership Management $93,299 $11,542 $11,113 11.9% 2.5% $95,606 $11,586

Law Enforcement Operations $135,500 $12,770 $12,296 9.1% 2.8% $145,047 $14,165

Subtotal, National Forest System $1,510,805 $193,807 $186,610 12.4% 42.0% $1,547,839 $190,858

Preparedness $675,000 $24,516 $23,606 3.5% 5.3% $675,000 $25,275

Hazardous Fuels Management $328,086 $37,308 $35,923 10.9% 8.1% $350,285 $39,658

Fire Operations $993,947 $107,220 $103,238 10.4% 23.3% $997,505 $109,158

National Fire Plan - Forest and Rangeland Res. $23,917 $1,157 $1,114 4.7% 0.3% $23,917 $1,179

National Fire Plan - Rehab and Restoration $11,500 $194 $187 1.6% 0.0% $11,600 $609

National Fire Plan - Forest Health Fed Lands $17,252 $1,155 $1,112 6.4% 0.3% $20,752 $1,209

National Fire Plan - Forest Health Coop Lands $9,928 $229 $221 2.2% 0.0% $11,428 $392

National Fire Plan - State Fire Assistance $55,000 $31 $30 0.1% 0.0% $71,250 $22

Subtotal, Wildland Fire $2,114,630 $171,810 $165,430 7.8% 37.3% $2,161,737 $177,502

Facilities $126,453 $9,730 $9,368 7.4% 2.1% $135,010 $9,600

Roads $228,825 $23,498 $22,625 9.9% 5.1% $236,521 $23,460

Trails $81,015 $10,545 $10,154 12.5% 2.3% $85,381 $10,774

Legacy Roads and Trails $50,000 $0 $0 0.0% 0.0% $90,000 $1,395

Deferred Maintenance $9,100 $338 $325 3.6% 0.1% $9,141 $236

Subtotal, Capital Improvement and Maintenance $495,393 $44,110 $42,472 8.6% 9.6% $556,053 $45,465

Land Acquisition $49,775 $1,259 $1,212 2.4% 0.3% $63,522 $1,302

Subtotal, Land Acquisition $49,775 $1,259 $1,212 2.4% 0.3% $63,522 $1,302

Alaska Subsistence $5,000 $369 $355 7.1% 0.1% $2,582 $396

Subtotal, Other Appropriations $5,000 $369 $355 7.1% 0.1% $2,582 $396

Brush Disposal $15,147 $1,731 $1,667 11.0% 0.4% $14,537 $156

Timber Salvage Sales $46,030 $8,005 $7,708 16.7% 1.7% $34,249 $5,785

Cooperative Work, Knutson-Vandenburg Trust Fund $83,357 $8,798 $8,471 10.2% 1.9% $78,057 $7,937

Reforestration Trust Fund $30,000 $3,114 $2,999 10.0% 0.7% $30,000 $3,206

Federal Lands Recreation Enhancement Fund $59,196 $432 $416 0.7% 0.1% $58,508 $441

Subtotal, Permanent and Trust Funds $233,730 $22,081 $21,261 9.1% 4.8% $215,351 $17,525

TOTAL - FOREST SERVICE * $4,960,601 $461,000 $443,882 8.9% 100.0% $5,155,157 $461,000

*Only includes appropriations that were used in the basis for assessing indirect costs. 

*Does not include Cost Pool 1 - Support Costs or Cost Pool 2 - Direct Project Approved Activities

*Does not include supplemental, emergency, transfer, or payments to states funds which are not assessed indirect costs.

FY 2009 Estimate FY 2010 Estimate

Exhibit 1. Comparison of FY 2009 Planned versus Actual Indirect Costs,

 and FY 2010 Estimated Indirect Costs by Budget Line Item
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-23

(dollars in thousands)

 Budget Line Item: Fund/Program 

FY 2011 

President's 

Budget

Estimated Total 

Cost Pool 

Assessments 

by BLI

Cost Pool 

Assessments 

as Percent of 

BLI

Cost Pool 

Assessments 

as Percent of 

Total

Forest and Rangeland Research $304,354 $43,878 14.4% 4.2%

Subtotal, Research $304,354 $43,878 14.4% 4.2%

Federal Lands $56,165 $11,241 20.0% 1.1%

Cooperative Lands $45,913 $1,796 3.9% 0.2%

State Fire Assistance $35,257 $1,815 5.1% 0.2%

Forest Stewardship $29,516 $2,061 7.0% 0.2%

Forest Legacy $100,110 $867 0.9% 0.1%

Forest Resource Information and Analysis $5,068 $151 3.0% 0.0%

Urban and Community Forestry $32,428 $1,589 4.9% 0.2%

International Forestry $9,136 $693 7.6% 0.1%

Subtotal, State and Private Forestry $313,593 $20,213 6.4% 1.9%

Integrated Resource Restoration $693,772 $196,435 28.3% 18.6%

Land Management Planning $45,958 $12,650 27.5% 1.2%

Inventory and Monitoring $169,992 $40,045 23.6% 3.8%

Recreation, Heritage, and Wilderness $293,152 $92,101 31.4% 8.7%

Grazing Management $50,508 $17,064 33.8% 1.6%

Minerals and Geology Management $87,366 $20,271 23.2% 1.9%

Landownership Management $95,323 $26,566 27.9% 2.5%

Law Enforcement $146,148 $32,478 22.2% 3.1%

Subtotal, National Forest System $1,582,219 $437,610 27.7% 41.4%

Preparedness $1,008,226 $231,426 23.0% 21.9%

Suppression $595,000 $73,581 12.4% 7.0%

Hazardous Fuels Management $349,447 $90,929 26.0% 8.6%

National Fire Plan (NFP) - Rehabilitation and Restoration $9,035 $1,396 15.5% 0.1%

National Fire Plan (NFP) - Forest and Rangeland Research $24,060 $2,703 11.2% 0.3%

National Fire Plan (NFP) - State Fire Assistance $50,104 $50 0.1% 0.0%

National Fire Plan (NFP) - Forest Health Federal Lands $14,442 $2,772 19.2% 0.3%

National Fire Plan (NFP) - Forest Health Cooperative Lands $7,027 $899 12.8% 0.1%

Subtotal, Wildland Fire $2,057,341 $403,756 19.6% 38.2%

Facilities $131,438 $22,011 16.7% 2.1%

Roads $164,365 $53,791 32.7% 5.1%

Trails $83,061 $24,704 29.7% 2.3%

Legacy Roads and Trails $50,371 $3,198 n/a/ 0.3%

Deferred Maintenance/ Infrastructure Improvement $9,158 $541 0.0% 0.1%

Subtotal, Capital Improvement and Maintenance $438,393 $104,245 23.8% 9.9%

Exhibit 2. Estimate of FY 2011 Total Cost Pool Assessments (Direct and Indirect)

 by Budget Line Item (BLI)
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-24

(dollars in thousands)

 Budget Line Item: Fund/Program 

FY 2011 

President's 

Budget

Estimated 

Total Cost 

Pool 

Assessments 

by BLI

Cost Pool 

Assessments 

as Percent of 

BLI

Cost Pool 

Assessments 

as Percent of 

Total

Exhibit 2. Estimate of FY 2011 Total Cost Pool Assessments (Direct and Indirect)

 by Budget Line Item (BLI) Continued

Land Acquisition $74,964 $2,985 4.0% 0.3%

Subtotal, Land Acquisition $74,964 $2,985 4.0% 0.3%

Management of NF Lands for Subsistence Uses $2,606 $909 0.0% 0.1%

Subtotal, Other Appropriations $2,606 $909 0.0% 0.1%

Brush Disposal $14,700 $3,584 24.4% 0.3%

Timber Salvage Sales $34,000 $13,265 39.0% 1.3%

Recreation Fee Enhancement $67,700 $1,007 1.5% 0.1%

Cooperative Work, Knutson-Vandenburg Trust Fund $68,800 $18,198 26.5% 1.7%

Reforestration Trust Fund $30,000 $7,350 24.5% 0.7%

Subtotal, Permanent and Trust Funds $215,200 $43,404 20.2% 4.1%

TOTAL* $4,988,670 $1,057,000 21.2% 100.0%

*Only includes appropriations that were assessed for cost pools.

*Does not include supplemental, emergency, transfer, or payments to states funds which are not assessed indirect costs.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-25

Deferred Maintenance and Asset Management

Deferred maintenance is maintenance that was scheduled to be performed but was delayed. Repairs, 

rehabilitation to restore functionality, and replacements are actions that are taken to preserve the asset 

so that it continues to provide acceptable service and achieve its expected lifespan. Maintenance 

excludes activities aimed at expanding the capacity of an asset or otherwise upgrading it to service 

needs different from, or significantly greater than, those originally intended.

Over the past decade, the Forest Service has implemented a national effort to collect detailed data on 

infrastructure condition and maintenance and improvement needs. This effort was initially in response 

to both financial reporting requirements and direction from Congress, but has shown significant value 

in support of additional agency priorities. 

The Forest Service uses condition surveys to estimate deferred maintenance on all major classes of its 

property, plant, and equipment (PP&E). No deferred maintenance exists for fleet vehicles and 

computers. These are managed through the agency’s working capital fund (WCF). Deferred 

maintenance estimates for most assets are based on condition surveys performed on a 5-year 

maximum revolving schedule, with the exception of the Bridges Asset Class which is on a 2-year 

maximum revolving schedule. To date, surveys of all administrative buildings, dams, bridges, roads 

open to passenger cars, and recreation sites have been accomplished. The agency’s deferred 

maintenance for high-clearance roads is determined annually from random sample surveys providing 

an 80 percent level of confidence. In FY 2009, the sample included 500 roads.

The agency is committed to sustaining a viable level of infrastructure, disinvesting in infrastructure 

that can no longer be managed to appropriate standards, rightsizing the portfolio, and eliminating the 

substantial backlog of deferred maintenance. Specific programmatic tools in support of asset 

management include:

Asset Management Planning - Executive Order 13327, Federal Real Property Asset 

Management, established the framework for improved use and management of real property 

owned, leased, or managed by the Federal Government. The agency recognizes the importance of 

real property resources through increased management attention, the establishment of clear goals 

and objectives, policies, and levels of accountability. The agency expects to implement active 

management of its infrastructure portfolio based upon asset management principles established by 

the Office of Management and Budget (OMB). 

Beginning in FY 2010, all facility projects exceeding the General Services Administration (GSA) 

prospectus level ($2.75 million) and up to $10 million will be reviewed by a Forest Service Asset 

Management Review Board (FS-AMRB). Similarly, projects exceeding $10 million will be 

reviewed by both the FS-AMRB and USDA-AMRB.

The agency continues to evaluate the road management objective levels for each road through site 

specific project analysis utilizing the Travel Analysis Process. The goal is to operate and 

maintain a road system that is financially sustainable and consistent with forest land management 

plan objectives, and to align funds to address the critical deferred maintenance. 

Facility Master Planning - Forest Service field units continue to complete or update their facility 

master plans which identify fire, administrative, research, visitor centers, and recreation facilities 

for decommissioning, retention, alternate use, or acquisition. These plans will be used to actively 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-26

manage the facility inventory, reduce the deferred maintenance backlog, and decommission 

unneeded facilities. 

For recreation sites, such as campgrounds, the agency is implementing both the results of the 

Recreation Facility Analysis (RFA) and Recreation Site Improvement (RSI) processes as a means 

to reposition the recreation site program to better meet current and future needs of recreation 

visitors. One of the primary goals is to reduce the deferred maintenance of recreation sites on 

each national forest by 20 percent over the 5 years that is covered by each national forest’s RFA 

program of work. Decommissioning of non-priority recreation sites is one method national 

forests may use to reduce deferred maintenance. To date, 115 national forests have completed 

RFA and have produced a 5-year Program of Work in order to prioritize recreation site 

investments based on public needs. All national forests were completed with their recreation site 

analysis by the end of FY 2009.

Forest Service Facility Realignment and 

Enhancement Act - In FY 2006, the 

Forest Service Facility Realignment and 

Enhancement Act (Title V, 

Appropriations Act, P.L. 109-54) was 

enacted. This legislation authorizes the 

sale of unneeded administrative sites and 

the use of receipts for acquisition, 

maintenance, reconstruction and 

construction of administrative infrastructure, creating incentives to dispose of these facilities. To 

date, activities under this authority, including pilot projects authorized under P.L. 107-63, Section 

329 as amended, generated approximately $42 million in revenues and reduced facilities deferred 

maintenance by over $11 million.

In FY 2009, the agency generated approximately $8.4 million in revenues through the 

conveyance of real property sale authorities, eliminating over 243,000 gross square feet of 

underutilized space and $2.7 million of deferred maintenance backlog by disposing of 36 

properties. For FY 2011, the agency will be initiating the conveyance of an estimated $10.3

million in land and excess administrative facilities, reducing deferred maintenance by an 

additional $1.4 million.

Facilities Maintenance Assessment – Beginning in FY 2006, the Department of the Interior, 

Environment, and Related Agencies Appropriations Act of 2006 authorized the agency to assess 

all funds available to the agency for the purpose of performing facilities maintenance on fire, 

administrative, and other (FA&O) facilities and major visitor centers (Title III, Administrative 

Provisions, P.L. 109-54). Using a program assessment to fund facility maintenance provides an 

incentive to dispose of unneeded buildings and provide a restraint on new construction, because 

the cost of facilities maintenance is borne by an assessment of program funds. 

Fiscal Year

Receipts

($ in 

thousands)

Deferred 

Maintenance

Reduction

($ in thousands)

2004-2008 $33,501 $8,564

2009 $8,414 $2,669

Cumulative 

Total $41,915 $11,232
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-27

The table below displays deferred maintenance by asset class as reflected in the agency’s financial 

statement.

1

Critical Deferred Maintenance: Deferred maintenance that results in a serious threat to public health or safety, a natural 

resource, or the ability to carry out the mission of the organization.

2

Non-critical Deferred Maintenance: Deferred maintenance that results in a potential risk to public or employee safety or 

health, compliance with codes, standards, regulations, and so forth; or needs that address potential adverse consequences to 

natural resources or mission accomplishment.

3

The roads’ deferred maintenance amount is for passenger-car roads (Levels 3 through 5). The total deferred maintenance 

amount, including the high clearance roads (Levels 1 and 2), is $4.5 billion. A portion of the Level 1 and 2 roads were 

classified as stewardship assets.

The overall condition of major asset classes range from poor to good depending on the location, age, 

and type of property. The standards for various classes of general PP&E, stewardship, and heritage 

assets are as follows:

• Roads and Bridges - Conditions within the National Forest System (NFS) road system are 

measured by various standards, including: Federal Highway Administration regulations for 

the Federal Highway Safety Act; best management practices for the non-point source 

provisions of the Clean Water Act from the Environmental Protection Agency and States; 

road management objectives developed through the National Forest Management Act forest 

planning process; and Forest Service directives.

• Buildings and Dams - Condition of administrative facilities ranges from poor to good, with 

approximately 37 percent needing major repairs or renovations; approximately 14 percent in 

fair condition; and 49 percent of the facilities in good condition. Condition of a dam is 

acceptable when the dam meets current design standards and does not have any deficiencies 

that threaten the safety of the structure or public. For dams to be rated in acceptable 

condition, the agency needs to restore the dams to the original functional purpose, correct 

unsightly conditions, or prevent more costly repairs.

Deferred Maintenance Totals by Asset Class

As of September 30, 2009

($ thousands)

Asset Class

Overall 

condition Critical1 Non critical2 Total

Bridges Varies 29,323 126,675 $155,998

Buildings Varies 143,639 879,366 $1,023,005

Dams Varies 9,902 18,768 $28,670

Fences Varies 298,243 371 $298,614

Handling Facilities Varies 22,233 24 $22,257

Heritage Varies 9,053 15,893 $24,946

Minor Constructed Features Varies 0 106,455 $106,455

Roads Varies 317,786 2,860,078 $3,177,864

Trails Varies 4,794 289,161 $293,955

Trail Bridges Varies 4,294 7,368 $11,662

Wastewater Systems Varies 23,588 15,782 $39,370

Water Systems Varies 66,690 51,278 $117,968

Wildlife, Fish, and TES Varies 4,537 1,969 $6,506

Grand Total $934,082 $4,373,188 $5,307,270
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-28

• Range Structures - Condition assessment for range structures (fences and stock handling 

facilities) is based on (1) a determination by knowledgeable range specialists or other district 

personnel of whether the structure would perform the originally intended function, and (2) a 

determination through the use of a protocol system to assess conditions based on age. A longstanding range methodology is used to gather this data.

• Heritage Assets - Condition surveys are performed annually on a minimum of 20 percent of 

the agencies’ priority heritage assets. Deferred maintenance is considered critical if there is a 

potential health or safety risk, or an imminent threat of loss of significant resource values. 

Heritage assets include archaeological sites that require determinations of National Register 

of Historic Places status, National Historic Landmarks, and significant historic properties.

• Recreation Sites - Quality standards for operating and maintaining recreation sites were 

established as measurable outputs (Meaningful Measures) for health and cleanliness, settings, 

safety and security, responsiveness, and the condition of the facility. Recreation sites include 

developed recreation sites, recreation areas within the general forest areas, campgrounds, 

trailheads, trails, water and wastewater systems, interpretive facilities, and visitor centers. 

These components are included in several asset classes of the deferred maintenance exhibit. 

• Trails and Trail Bridges

• Wildlife, Fish, and Threatened and Endangered Species Structures - Conditions are 

determined by field biologists using their professional judgment. The deferred maintenance 

is considered critical if resource damage or species endangerment would likely occur if 

maintenance were deferred much longer.

- Condition surveys are conducted to provide up-to-date information 

about the condition of all physical features and provide data to identify deficiencies and 

corrective measures that need to be taken. Deferred maintenance is identified for trails and 

trail bridges that are in disrepair due to lack of scheduled maintenance; are in violation of 

applicable safety codes or other regulatory requirements, such as applicable accessibility 

guidelines; or are beyond their designed service life. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-29

Facilities Maintenance Assessment

Background

Beginning in FY 2006, Congress authorized a multi-program assessment for maintenance of fire, 

administrative, and other (FA&O) facilities, including recreation visitor centers (Title III,

Administrative Provisions, P.L. 109-54). Appropriated funds from Forest and Rangeland Research, 

State and Private Forestry, National Forest System, Wildland Fire Management, Capital Improvement 

and Maintenance, Land Acquisition, Other Appropriations, and eligible Permanent and Trust Fund 

accounts were assessed up to $35 million. FA&O facilities include: fire facilities, such as air tanker 

bases, lookouts, airports, heliports, and fire management centers; administrative facilities, such as 

administrative offices (ranger district offices, forest supervisor offices, regional offices, research 

stations and laboratories), service centers and storage buildings; and other facilities, such as 

telecommunication facilities, towers, and dams, and recreation visitor centers. Maintenance less than 

$250,000 for these facilities will use funds collected by this assessment. Maintenance for FA&O and 

recreation visitor centers greater than $250,000 is funded through the Capital Improvement and 

Maintenance Facilities budget line item and is shown on the Facilities Major Project List.

The Forest Service currently maintains approximately 17,400 FA&O buildings, representing 

approximately 24 million square feet. The agency also maintains an inventory of over 1,700 dams 

and numerous other facilities such as water and wastewater systems and communication facilities. 

The current inventory is larger than needed and many facilities are in disrepair as evidenced by a 

large deferred maintenance backlog. It has been difficult to properly maintain facilities with available 

resources. Prior to new authorities authorized in FY 2006, the agency lacked direct incentives to 

reduce inventory and resultant maintenance needs. 

Using a program assessment to fund facility maintenance provides an incentive to dispose of 

unneeded buildings and provide a restraint on new construction, because the cost of facilities 

maintenance is borne by an assessment of program funds. This provides financial accountability for 

the cost of doing business.

Assessments and Allocations

The facilities maintenance assessment will be based on approximately 24 million existing square feet. 

This amount includes a minimum of $1.48 per square foot, for an approximately $35 million base 

program. Assessments are distributed across eligible budget line items based on each program’s prior 

year direct labor hour charges. In FY 2010, each unit requested additional assessments of 

approximately $17.1 million above the $35 million base, to meet priority needs of their respective 

units for a total assessment of $52,050,000. The assessment varies from a minimum of $1.48/sq. ft. 

up to $3.51/sq. ft., which falls within the limits of 4 percent of the facility replacement value and $7 

per square foot. 

In FY 2011, the Forest Service proposes to assess programs up to $55 million. This amount includes 

the minimum $1.48 per square foot, for an approximately $35 million base program, and an 

additional $20 million to meet the priority needs of each respective unit. Consistent with FY 2010, 

the assessed amount is limited to 4 percent of the facility replacement value and $7 per square foot. 

Allocations will be based on each unit’s requested additional assessment amount.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-30

The following tables display the assessments and allocations by unit and the distribution of the 

assessment by program.

 

FY 2010 Facilities Maintenance Assessment and Allocation by Unit

Unit Name

Total Gross 

Square Feet 

(GSF) 

as of 9/30/08

Dollars ($)

per

GSF

Total

Assessment

Total

Allocation

Northern Region 2,570,097 2.04 $5,244,000 $5,244,000

Rocky Mountain Region 1,426,010 2.34 $3,336,000 $3,336,000

Southwestern Region 1,569,092 3.51 $5,500,000 $5,500,000

Intermountain Region 2,050,975 1.94 $4,209,000 $4,209,000

Pacific Southwest Region 4,144,145 2.08 $8,600,000 $8,600,000

Pacific Northwest Region 4,029,411 2.16 $8,691,000 $8,691,000

Southern Region 1,976,526 2.45 $4,850,000 $4,850,000

Eastern Region 2,841,671 2.00 $5,693,000 $5,693,000

Alaska Region 575,857 2.89 $1,666,000 $1,666,000

Region Subtotal 21,183,784 2.26 avg. $47,789,000 $47,789,000

Forest Products Lab 401,546 1.48 $596,000 $596,000

Int. Inst. Of Tropical Forestry 26,459 2.31 $61,000 $61,000

Rocky Mountain Station 414,247 1.99 $825,000 $825,000

Northern Station 493,236 1.48 $730,000 $730,000

Pacific Northwest Station 279,908 1.99 $558,000 $558,000

Pacific Southwest Station 235,406 1.48 $348,000 $348,000

Southern Research Station 466,469 1.48 $690,000 $690,000

Research Station Subtotal 2,317,271 1.64 avg. $3,808,000 $3,808,000

San Dimas Tech. Dev. Center 32,495 1.48 $48,000 $48,000

Missoula Tech. Dev. Center 71,715 1.48 $106,000 $106,000

Grey Towers 55,303 3.65 $202,000 $202,000

Wood Education 65,191 1.49 $97,000 $97,000

Other Units Subtotal 224,704 2.02 avg. $453,000 $453,000

TOTAL 23,725,759 $52,050,000 $52,050,000
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-31

FY 2009 Facilities Maintenance Assessment by Program

Program FY 2009

Assessment

Research $3,814,000

State & Private Forestry $955,000

International Forestry $0

National Forest System

 Land Management Planning $668,000

 Inventory and Monitoring $1,985,000

 Recreation, Heritage and Wilderness $4,764,000

 Wildlife and Fisheries Habitat Management $2,185,000

 Grazing Management $967,000

 Forest Products $6,183,000

 Vegetation and Watershed Management $2,673,000

 Minerals and Geology Management $1,151,000

 Landownership Management $1,487,000

 Law Enforcement 0

 Valles Caldera 0

 National Fire Plan-Rehabilitation and Restoration $72,000

Total National Forest System $22,135,000

Capital Improvement and Maintenance

 Facilities $1,100,000

 Roads $3,127,000

 Trails $1,114,000

 Legacy Roads and Trails $153,000

 Deferred Maintenance and Infrastructure Improvement $31,000

Total Capital Improvement and Maintenance $5,525,000

Land Acquisition $189,000

Other Appropriations $54,000

Wildland Fire Management $16,939,000

Permanent Appropriations $1,062,000

Trust Fund Appropriations $1,377,000

Total Assessment $52,050,000
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-32

Fire Transfers

In FY 2009, the Forest Service did not transfer any funds from other accounts to the Wildland Fire 

Management account. The table below represents accounts from which funds were transferred 

between FY 2002 through FY 2009 and for which funds have not been repaid. From FY 2002 to FY 

2009, the Forest Service transferred approximately $2.3 billion from discretionary, mandatory, and 

permanent accounts, to help cover fire suppression costs. Of that total, $1.85 billion has been repaid. 

Projects at all levels of the organization were deferred as a result of the transfers.

Funds Withdrawn for Transfer for Wildland Fire Suppression 

and Not Repaid from FY 2002 to 2009

(dollars in thousands)

Forest & Rangeland Research (FRFR) $32

State and Private Forestry (SPSP) $3,099

National Forest System (NFNF) $106,167

Capital Improvements and Maintenance (CMCM) $35,305

Land Acquisitions L&WCF (LALW) and (LAAQ) $9,308

Brush Disposal (BDBD) $64

Federal Lands Recreation Enhancement Fund (FDFD) $45

Timber Purchaser Election Road Construction (PEPE) $10,090

Timber Salvage Sales (SFSF) $112

Working Capital Fund (WCWC) $86,029

Cooperative Work, Knutson-Vandenburg (CWKV) $33,000

Total $283,251
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-33

Knutson-Vandenberg (K-V) Financial Status

The Forest Service has used its authority provided in the annual Interior and Related Agencies 

Appropriations Acts to transfer, from any appropriations or funds available to the Forest Service, 

necessary amounts to support emergency fire suppression requirements. The Forest Service has

historically transferred funds available to the agency through the Knutson-Vandenberg (K-V) Fund (a 

fund authorized in P.L. 71-319.) The Fund provides money from timber purchasers to reforest and 

perform other natural resource improvements on their timber sale areas. As provided by section 412 

of P.L. 109-54, K-V receipts are also used for forest restoration work in the region in which the 

receipts were collected. The K-V Act provides that any deposit found to be in excess of the cost of 

doing the work shall be returned to the Treasury, provided there are no outstanding unreimbursed fire 

suppression transfers. At this time there are no excess receipts identified within the K-V fund, 

therefore the repayment of the outstanding transfers is needed for resource work. If the $33 million is 

not fully repaid, critical resource improvement work, such as, treating noxious weeds, reforestation, 

reducing hazardous fuels, and improving habitat for threatened and endangered species, will be 

deferred or will have to be funded with appropriated funds.

The following table displays the repayment status of the K-V Fund:

Repayments to the Knutson-Vandenberg Fund

(Dollars in Thousands)

FY 2006 FY 2007 FY 2008 FY 2009 FY 2010*

Amount Owed to K-V Fund from Prior 

Year $0 $159,000 $159,000 $163,000 $33,000

Transfers from K-V Fund $159,000 $0 $30,000 $0 $0

K-V Fund Repayment $0 $0 $26,000 $130,000 $0

Balance Outstanding $159,000 $159,000 $163,000 $33,000 $33,000

*FY 2010 – As of date of publication.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-34

National Scenic and Historic Trails

FY 2009 FY 2010 FY 2011

($ in thousands)

Trails Land Partner* Total Trails Land Total Trails Land Total

Acq. Acq. Acq.

Appalachian 193 1,775 1,968 3,936 193 0 193 193 0 193 

Arizona 125 0 0 125 125 0 125 125 0 125 

Continental 

Divide

2,000 0 2,000 4,000 2,000 0 2,000 2,000 0 2,000 

Florida 1,850 725 2,575 5,150 1,500 500 2,000 1,500 0 1,500 

Nez Perce 640 0 640 1,280 640 0 640 640 0 640 

Pacific 

Crest

2,000 1,390 3,390 6,780 2,000 0 2,000 2,000 0 2,000 

Pacific 

Northwest

125 0 0 125 125 0 125 125 0 125 

All-others** 822 0 822 1,644 822 0 822 822 0 822 

TOTAL $7,755 $3,890 $11,395 $23,040 $7,405 $500 $7,905 $7,405 $0 $7,405

* Estimated cash and in-kind contributions. Estimated contributions for FY 2010 and FY 2011 are not known at this time.

** All others includes the following national scenic and historic trails: California, Camino Real Tejas, Camino Tierra 

Adentro, De Anza, Ice Age, Iditarod, Lewis and Clark, Mormon Pioneer, North Country, Old Spanish, Oregon, 

Overmountain Victory, Pony Express, Santa Fe, and Trail of Tears.

Overview

Since enactment of the National Trails System Act in 1968, the Forest Service has designated trail 

coordinators for seven National Scenic and Historic Trails (NS&HT): Appalachian, Arizona, 

Continental Divide, Florida, Nez Perce (Nee Mee Poo), Pacific Crest, and Pacific Northwest. In 

addition, the Forest Service manages portions of 15 additional NS&HTs on NFS lands. Funding for 

administration and management of these trails is included within the Capital Improvement and 

Maintenance - Trails budget line item. Acquisition of trail segments is included within the Land 

Acquisition budget line item. 

Appalachian National Scenic Trail (AT) - This 2,176-mile footpath crosses along the ridgecrests and 

across the major valleys of the Appalachian Mountains from Katahdin in Maine to Springer Mountain 

in northern Georgia. The trail traverses Maine, New Hampshire, Vermont, Massachusetts, 

Connecticut, New York, New Jersey, Pennsylvania, Maryland, West Virginia, Virginia, Tennessee, 

North Carolina, and Georgia. The trail is used by day, weekend, and other short-term hikers, sectionhikers, and thru-hikers who hike the entire length of the trail in one season. The trail is currently 

protected along more than 99 percent of its course by Federal or State ownership or rights-of-way. 

Arizona National Scenic Trail (ANST) - Designated on March 30, 2009 through the Omnibus Public 

Land Management Act, the ANST extends approximately 807 miles across the State of Arizona from 

the United States-Mexico international border to the Arizona-Utah border. The forests have been 

working closely with the Arizona Trails Association (ATA) in addressing construction needs to fill in

gaps on the trail. The agency is in the process of establishing a Trail Administrator position for the 

trail and starting development of a comprehensive resource management plan.

 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-35

Continental Divide National Scenic Trail (CDT) - Designated on November 10, 1978, the CDT is a 

nationally significant resource providing long distance trail opportunities primarily for hiking and 

horseback riding recreationists. The trail’s corridor links Federal, State, and private lands from 

Mexico to Canada, passing through 25 national forests, 3 national parks, 1 national monument, and 8 

Bureau of Land Management (BLM) field office areas. When completed, the trail will be 

approximately 3,100 miles in length. 

Florida National Scenic Trail (FNST) - Added to the national trails system in 1983, the FNST 

consists of 1,400 planned miles stretching from Big Cypress National Preserve to Gulf Islands 

National Seashore plus 254 miles of an officially designated side trail. The FNST is the only national 

scenic trail that gives the public the opportunity to experience a wide range of subtropical 

environments, karst spring and riverine systems, and a beach walk on a national seashore. 

Nez Perce National Historic Trail (NPNHT) - In 1986 Congress acknowledged the significance of 

the Nez Perce Conflict of 1877 by establishing the 1,170 mile NPNHT. The route winds through 

remote, rugged, and scenic terrain and, while 865 miles of the trail is an automobile tour route, many 

miles are accessible only by foot with little changed in more than a century. 

Pacific Crest National Scenic Trail (PCT) - The PCT is a 2,650-mile congressionally designated trail 

that follows the crest of the Sierra Nevada and Cascade Mountain ranges from the Mexican to 

Canadian borders through California, Oregon, and Washington. Established in 1968, the trail was 

completed in 1993 and lies upon publicly owned lands except for approximately 300 miles where it 

crosses private lands (easements have been acquired for the trail tread). Over the past decade the PCT 

has become a favorite of thru-hikers and thru-riders and each year an average of 300 hikers attempt to 

cover the full length of the trail. 

Pacific Northwest National Scenic Trail (PNNST) - Designated on March 30, 2009 through the 

Omnibus Public Land Management Act, the PNNST consists of approximately 1,200 miles, 

extending from the Continental Divide in Glacier National Park, Montana, to the Pacific Ocean Coast 

in Olympic National Park, Washington. The agency is in the process of establishing a Trail 

Administrator position for the trail and starting development of a comprehensive resource 

management plan.

Other National Scenic and Historic Trails (NSHT) - There are an additional 15 national scenic and 

historic trails totaling over 6,700 miles that the Forest Service coordinates management with other 

Federal public land agencies. These trails are: California, Camino Real Tejas, Camino Tierra 

Adentro, De Anza, Ice Age, Iditarod, Lewis and Clark, Mormon Pioneer, North Country, Old 

Spanish, Oregon, Overmountain Victory, Pony Express, Santa Fe, and Trail of Tears. 

Planned Program of Work

For FY 2010 and 2011, priority will be placed on continuing to foster and expand partnerships, 

especially with those that involve volunteers and youth organizations. Maintenance and operation of 

most trails, trailheads, and campgrounds will be accomplished through these efforts. Interpretative 

and educational programs and products will continue to be delivered. 

Specific activities planned in FY 2010 are as follows: 

Appalachian – Partners: Appalachian Trail Conservancy, Appalachian Mountain Club, National 

Park Service, and other Federal, State, and non-governmental organizations.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-36

• Green Mountain National Forest: Reconstruct the Big Branch Bridge, a 100-foot suspension 

bridge, in cooperation with the National Park Service, and reduce deferred maintenance of 

trails, shelters and the historic Stratton Mountain Fire tower and Caretakers Cabin along the 

trail in Vermont. 

• White Mountain National Forest: Install new bridge over Jacob’s Brook. 

Continental Divide – Partners: Continental Divide Trail Association, Colorado Trail Foundation, 

National Park Service, and other Federal, State, and non-governmental organizations

• Plan for locating 67 miles of survey; constructing 58 miles of those, and reconstructing the 

other 9 miles.

• Publish the location of the trail’s travel route in the Federal Register.

• Publish a high quality map of the trail for Colorado.

• Develop rights-of-way strategies in collaboration with the States of Colorado, New Mexico, 

Idaho, Wyoming, and Montana.

Florida – Partners: Florida Trail Association, U.S. Fish and Wildlife Service, and other Federal, 

State, and non-governmental organizations.

• In partnership with the University of Oregon, initiate a combination interpretive, kiosk, and 

trailhead plan to be coordinated with the trail’s land management partners for statewide 

implementation.

• In partnership with Florida Trail Association, initiate a comprehensive strategic positioning 

process designed to: (1) expand our existing partnership model to more fully engage State, 

Federal, local government, and private land management partners; (2) create a cross 

partnership mutual understanding of the desired recreational experience we are collectively 

seeking to provide for the trail; and (3) identify new and inventive mechanisms. 

Pacific Crest – Partners: Pacific Crest Trail Association, California Conservation Corps, Northwest 

Youth Corps, Student Conservation Association, Backcountry Horsemen of California, and other 

Federal, State, and non-governmental organizations.

• Continue support and expansion of traditional skills training for volunteers and agency staff 

in California, Washington, and Oregon including crosscut saws and horse packing.

• Continue development of a technical guide for management planning of the trail in 

coordination with other Federal agencies to ensure integrated planning efforts.

• Continue support of youth programs, emphasizing the connection of youth with nature and 

building citizen stewards.

• Maintain 1,200 miles of the trail to standard.

Nez Perce (Nee-Me-Poo) – Partners: Nez Perce Trail Foundation, National Park Service, 

Backcountry Horsemen of America, tribal governments and other Federal, State, and nongovernmental organizations.

• Continuing work on revision of the Trail’s 1990 Comprehensive Management Plan with open 

house sensing meetings to begin this spring 2010.

• Improve more than 100 miles of trail.

• Continue plans for an interpretive sign at the parking lot and signed interpretive points at the 

Camas battle site in Clark County, Idaho.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-37

• Complete and publish a new visitor map for the trail.

• Complete transition of the Trail’s website to the new USDA Forest Service web portal.

Other – Partners: Numerous foundations, trail associations, tribal governments, and other Federal, 

State, and non-governmental organizations.

• Ice Age Trail – Continue planning for a major re-route of the trail to eliminate the need for a 

bridge at the major crossing of the South Fork of the Yellow River due to terrain difficulty.

• Lewis and Clark Trail – Maintain and operate the trail, trailheads, interpretive sites, and three 

campgrounds (Lolo National Forest); monitor two historic sites along the trail (Lolo National 

Forest); and provide weed treatment along the Lewis and Clark Trail and at access points.

• North Country Trail – Replace deteriorated informational signs and install identifying signs at 

trail crossings in the Rainbow Lake Wilderness Area, and repair interpretive signs along a 

section of the Drummond Woods Interpretive trail (Chequamegon-Nicolet National Forest); 

continue to meet with local representatives to relocate the trail off of roads and separate 

mountain bike use off of a portion the trail on the Marietta Unit (Wayne National Forest); 

repair Bush Creek bridge, complete analysis for bridge installation on the segment that 

crosses the East Branch of the Ontonagon River, and install short bridge segments at stream 

crossings on the trail along the Black River and a tributary to the West Branch of the Big Iron 

River. (Ottawa National Forest); conduct routine trail maintenance, replace trail markers on 

Munising Ranger District, minor trail re-route and kiosk in Castle Rock area on St. Ignace 

Ranger District, and construct trail bridge over Carp Wild and Scenic River (Hiawatha 

National Forest); and reconstruct a new mouldering/compost privy at the Finger Lakes Trail 

Shelter in partnership with the Student Conservation Association trail crew (Finger Lakes 

National Forest). 

FY 2009 Program Accomplishments

Volunteers

Hours

In-kind 

Contributions

($ in 

thousands)

Cash 

Contributions 

($ in 

thousands)

Miles of 

Trail 

Maintained

Miles of 

Trail 

Improved

Acres 

Acquired

Major 

Structures 

Constructed 1/

Appalachian 5,353 $104 $138 10 0 301 2

Arizona 0 $0 $0 0 0 0 0

Continental 

Divide

16,536 $323 $437 11 61 0 1

Florida 69,433 $1,355 $0 37 44 188 5

Nez Perce 0 $0 $0 11 92 0 31

Pacific Crest 75,530 $1,474 $0 57 4 1,049 6

Pacific 

Northwest

0 $0 $0

0 0 0 0

Other 5,937 $103 $350 134 4 0 8 

 Total 172,789 $3,358 $925 259 205 1,538 53 1/ Major structures include bridges, kiosks, boardwalks, campgrounds, etc.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-38

Office of General Counsel Reimbursement

A Forest Service Administrative Provision in the FY 2010 Appropriations for the Department of 

Interior, Environment, and Related Agencies Appropriations Act (P.L.111-88) provides:

“Notwithstanding any other provision of law, any appropriations or funds available to 

the Forest Service not to exceed $500,000 may be used to reimburse the Office of the 

General Counsel (OGC), Department of Agriculture, for travel and related expenses 

incurred as a result of OGC assistance or participation requested by the Forest 

Service at meetings, training sessions, management reviews, land purchase 

negotiations and similar non-litigation related matters. Future budget justifications 

for both the Forest Service and the Department of Agriculture should clearly display 

the sums previously transferred and the requested funding transfers.”

The USDA Office of General Counsel bills the Forest Service quarterly for non litigation travel and 

related costs. The FY 2009 actual total in the table below reflects billings received to date. Final 

billing has not been received from the department. 

FY 2009 Actual

Reimbursement

FY 2010 Estimated

Reimbursement

FY 2011 Estimated

Reimbursement

$56,093 $90,000 $90,000
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-39

Office of Tribal Relations

The Office of Tribal Relations (OTR) provides policy advice and direction in implementing agency 

programs and activities in a manner that honors Indian treaty rights, fulfills the legally mandated trust 

responsibility of the FS, and maintains a government-to-government relationship with federally 

recognized tribal governments. The OTR supports the mission of all programs and disciplines 

through both general and issue-specific efforts. 

The OTR has responsibilities that span all of the Deputy areas within the Forest Service (FS). The FS 

manages National Forest System lands and resources for the benefit of the general public, while 

respecting the special trust relationship of the United States towards the 564 federally recognized 

Indian tribes. State and Private Forestry programs provide assistance to private forest landowners, 

including tribal governments. Research programs include a variety of projects that relate to tribes. 

The Forest Service Business Operations include authorities and responsibilities to work with tribes. 

Many National Forest System lands are adjacent to American Indian or Alaska Native tribes or tribal 

lands. In some cases, tribal governments retained rights on what are present-day national forests or 

grasslands when the tribes relinquished lands to the United States Government.

Allocation and Integration

OTR is funded by a direct cost pool, using all of the funds available to the FS. Specific projects are 

funded by the primary purpose of the projects.

Partnerships

The OTR works within the goals and alignments established in the Tribal Relations Program Strategic 

Plan to:

• Ensure the agency redeems its trust responsibility and protects American Indian and Alaska 

Native reserved rights as they pertain to Forest Service programs, projects, and policies.

• Leverage partnerships to maximize mutual success.

• Promote integration and utility of the Tribal Relations Program throughout the agency.

• Support specific strategic goals and objectives of the Forest Service.

In order to accomplish these goals, OTR works closely and collaboratively to leverage partnerships 

with internal units, tribal governments, intertribal organizations, and other Federal and State agencies. 

OTR supports and integrates Tribal Relations components of policy analysis and development, 

technical, and administrative assistance, training, and oversight. The program also advises national 

and regional FS leadership in matters pertaining to interactions with tribes and tribal representatives. 

OTR helps develop regulations for and tracks implementation of the Tribal Relations components of 

specific legislation, including the Farm Bill and the Tribal Forest Protection Act. Tribal Relations 

communication products, as well as the Tribal Relations program training, have been refined. This 

has led to expanded involvement with intertribal organizations and more appropriate implementation 

of agency policies.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-40

Partnerships

For over a century, the Forest Service has maintained a commitment to working with a variety of 

organizations and interests in its obligation for ‘caring for the land and serving people.’ As the 

complexity, constraints and opportunities surrounding the management of public lands increase, 

partnerships continue to be an essential mechanism toward achieving social, economic and ecological 

goals associated with these lands. Through these working relationships: 

• We build stronger communities and healthier ecosystems—sharing resources and expertise 

to achieve sustainable solutions to current and future resource challenges.

• We empower employees and partners—improving the art of associating with others, 

capitalizing and sharing information and skills, and fostering continued learning and deeper 

connections between people and the land.

• We create a more effective and efficient organization—expanding achievements through 

working together and securing or leveraging new and existing sources of support.

The Forest Service exercises many creative and innovative approaches across the country to promote 

healthy and vibrant forests, grasslands, and communities. Through strong and enduring partnerships, 

the agency is able to successfully accomplish far more than it could on its own. Challenge Cost Share 

Agreements (see examples and exhibit) are one approach by which the agency can readily illustrate 

the power behind shared energies and contribution invested in the public’s interest. 

Examples of Forest Service Partnerships

The following examples include various challenge cost-share relationships between the Forest Service 

and partners, implemented in FY 2009.

State and Private Forestry

Linking Girls to the Land (Washington Office) - With support and involvement of the Forest 

Service, Girl Scouts of the USA has launched a nationwide Community Action Project (Forever 

Green). This project involves 36 Girl Scout councils and active partnerships with communities, 

schools, local, State and federal natural resource agencies, non-profits, businesses and educational 

institutions. Specific focus areas for Community Action Projects include air quality, waste 

management, water conservation, energy conservation, and the creation and improvement of 

community green spaces. Each Council involved in Forever Green works closely with local Forest 

Service experts to link their specific projects to national and state forests to impart critical 

environmental lessons. 

Nature High Camp (Region 4) - Nature High Camp is a unique partnership between the 

Bureau of Land Management, the Bureau of Reclamation, the Natural Resource Conservation 

Services, and the US Geological Survey, the Utah Association of Conservation Districts, the Snow 

College, and the Forest Service. The purpose of the project is to cooperatively enhance outreach to 

and encouragement of women and minorities considering natural resource careers. Partners are 

providing quality education and experience in natural resources and related fields at all levels. 

Specifically, the Forest Service is providing assistance with planning activities for the camp, general 

marketing, website hosting, career fair design and implementation, and a variety of camp activities.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-41

National Forest System

Clearwater Basin Collaborative (Region 1) - In 2006, a consortium of individuals and 

organizations representing diverse interests within the Clearwater Basin of Idaho began meeting to 

find mutually agreeable solutions to natural resource issues. Participants include the Nez Perce Tribe, 

conservation groups, the timber industry, recreation interests, local government officials, and 

Clearwater Basin opinion leaders. This is the only collaborative effort to address forest management 

practices taking place in the Upper Clearwater Basin and it comes at a critical time in relation to the 

forest planning and travel management planning processes. Through this agreement, the Forest 

Service is supporting the Clearwater Basin Collaborative's work with community interests to promote 

"zones of agreement" for actions concerning the use and management of the Clearwater and Nez 

Perce National Forests within the Clearwater Basin in Idaho. 

Decommissioning Roads in the Upper Joseph Creek Watershed (Region 6) - Wallowa Resources,

in partnership with the Forest Service, is improving riparian and stream conditions in Big Canyon, 

and Poison and South Fork Summit Creeks by removing all existing culverts and decommissioning 

the roadbed through a combination of subsoiling and outsloping. This project accomplishes several 

things: eliminating all motorized vehicle use; re-establishing sediment transport and biologic and 

hydrologic connectivity; reducing the risk of culvert failure and concurrent sedimentation to steelhead 

spawning habitat; and increasing infiltration of the former road surface. This project was identified as 

a high priority restoration activity in the Upper Joseph Watershed Action Plan.

Jasper Wildfire Monitoring (Region 2) - In this partnership between the Colorado State University 

System and the Forest Service, participants are working cooperatively to re-measure the established 

monitoring research plots—eventually tiering data to the Jasper Monitoring 5-Year report. In the 

project, partners are assessing the spatial arrangement of forested vegetation in the burned area, as 

well as the structure and stocking of forests that burned. Partners are also determining effects of the 

fire on understudy vegetation, microclimates, and soils and hoping to conclude on the management 

implications of a catastrophic fire. 

Whistle Stop Project (Region 10) - The Forest Service and Alaska Railroad Corporation are 

working cooperatively to plan, survey and design new recreation opportunities between Portage and 

Trail Creeks as part of the Whistle Stop project. This cooperation is helping to identify a wide array 

of recreational opportunities for a larger cross-section of the public accessed via the Alaska Railroad 

Glacier Discovery Train.

Research and Development

Disease Resistance Among Hardwood Species in the Southern Region (Region 8) - The Forest 

Service is working with the University of Tennessee to help manage and protect hardwood and 

conifer resources in the forests of Tennessee and the eastern hardwood region of the US. In this 

project, the Forest Service is contributing seed and seedlings for restoring disturbed or degraded 

forests in Tennessee and other states. Information produced from this work will benefit all forest 

resources by providing a scientific basis for management decisions, while simultaneously furthering 

the Genetic Resource Management program of the Forest Service.

Roundtable Coordinator (Region 2) - In this unique relationship with The Nature Conservancy, the 

Forest Service is supporting a Coordinator position for the Front Range Fuels Treatment Partnership 

Roundtable. The Roundtable is a collaborative group that was formed to address hazardous fuels 

reduction and ecosystem restoration across a 10-county area within the Front Range of Colorado. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-42

The Roundtable consists of individuals from State and Federal agencies, local governments, 

environmental and conservation organizations, academic and scientific communities, industry and 

other user groups. This partnership helps further the accomplishments of the Roundtable—providing 

communication, coordination and overall logistical support for the Roundtable’s projects, research 

and results.

National Forest Foundation

The National Forest Foundation, as the agency’s congressionally chartered nonprofit partner, engages 

the public in community-based and national programs that promote the health and public enjoyment 

of the National Forest System. In FY 2009, the National Forest Foundation supported 125 projects 

benefiting National Forest System lands, representing a total investment of $2,967,187.

Every federal dollar the National Forest Foundation invests through grants to nonprofit organizations 

is matched at a minimum ratio of 1:1 with privately raised funds. Through foundations, business 

partners and grant recipients, additional cash and in-kind funds are raised beyond the minimum to 

help implement projects. This average leverage ratio of 4:1 measurably multiplies the resources 

available to implement projects. Examples of supported projects include:

Monitoring Non-Native Invasive Plant Species along the Appalachian Trail in Virginia and 

North Carolina—The Appalachian Trail Conservancy is recruiting and training up to 100 

volunteers to monitor 14 plant species and input data into a central database along 30 miles of 

the Appalachian Trail on the Nantahala and George Washington and Jefferson National 

Forests.

Bats and America's National Forests—Bat Conservation International is working with the 

Daniel Boone, Saint Francis, Hoosier, and Chattahoochee-Oconee to help protect and 

maintain critical habitat for bats. The project focuses on protecting biodiversity, enhancing 

recreational safety, and maintaining healthy forest ecosystems.

Nevada Roadless Area Stewardship Project—Friends of Nevada Wilderness is working with 

three ranger districts on the Humboldt-Toiyabe National Forest to engage citizen volunteers 

from local communities to complete on-the-ground restoration projects protecting riparian 

areas, recreation values and wildlife habitat.

Harney County Restoration Collaborative—A collaborative effort is working together to 

complete a landscape-scale NEPA process that targets the eastern portion of the Malheur 

National Forest. This helps to build local capacity to collaboratively address future natural 

resource issues.

Trail Maintenance and Drainage Repair in the Mt. Baker Wilderness—Two heavily used 

trails are being maintained and repaired by the Pacific Northwest Trail Association within the 

Mt. Baker Wilderness on the Mt. Baker-Snoqualmie National Forest. Additionally, crews are 

obliterating user-made trails and removing litter from the backcountry.

Route and Dispersed Campsite Inventory and Trail Restoration in the Abajos and La Sals—

With the Manti-La Sal National Forest, Red Rock Forests is helping complete the last phase 

of a comprehensive route and dispersed campsite inventory for the Abajo Mountains and 

beginning inventory in the La Sal Mountains. The group is also working with local ranger 

districts on trail restoration in both areas.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-43

Wilderness Stewardship on the Tongass National Forest—With the support of the Tongass 

National Forest, the Sitka Conservation Society is working to help advance the Chief’s 10-

Year Wilderness Stewardship Challenge in the West Chichagof-Yacobi Wilderness on the 

Sitka Ranger District. The project brings together community groups to help enhance 

wilderness stewardship on the Tongass.

Tumacacori-Atascosa-Pajarito Mountains Complex Native Ranid Frog Conservation—An

ongoing amphibian conservation project in the Arizona and Sonora borderlands is being 

implemented by Sky Island Alliance. The project is helping to restore native ranid frog 

species on the Coronado National Forest by completing restoration and conservation 

activities at identified key recovery sites. 

Weeds and Wildlife: Restoring Habitat through Citizen-Based Monitoring and Restoration—

The Wilderness Institute is engaging local community volunteers and NGOs in monitoring 

invasives and restoring native plant communities, helping to improve wildlife habitat on the 

Bitterroot National Forest.

WRV 2009 Partnership for Stewardship—Working on the Arapaho-Roosevelt, Pike-San 

Isabel, and Routt-Medicine Bow National Forests, Wildlands Restoration Volunteers is 

engaging nearly 1,000 volunteers in 20 important habitat restoration and trail projects in 

northern Colorado, fostering community involvement in the stewardship and restoration of 

local natural resources.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-44

National Grants and Agreements (G&A) Summary by Instrument Type *

US Forest Service, Fiscal Year 2009

Instrument Type G&A Count FS 

Contribution

Partner 

Contribution TOTAL Value

Challenge Cost Share Agreement 1,048 $44,305,809 $37,685,688 $81,991,498

Collection Agreement 1,283 $18,810,086 $52,268,610 $71,078,696

Cooperative Agreement 325 $39,350,439 $16,674,613 $56,025,052

Cooperative Research and Development Agreement 13 $336,022 $190,434 $526,456

Cost Reimbursable Agreement 183 $21,018,067 $685,320 $21,703,388

Domestic Grant 1,026 $599,191,442 $189,084,986 $788,276,429

Fire Agreement 276 $9,385,833 $5,038,831 $14,424,665

Interagency and Intra-agency Agreement 1,885 $138,923,100 $102,405,394 $241,328,493

International Cooperative Agreement 12 $378,188 $89,553 $467,741

International Grant 13 $1,429,225 $541,861 $1,971,086

International Joint Venture Agreement 3 $27,400 $1,250 $28,650

Joint Venture Agreement 627 $44,907,856 $15,456,065 $60,363,920

Law Enforcement Agreement 497 $7,150,450 $250,634 $7,401,084

Memorandum of Understanding 383 $700 $1,500 $2,200

Participating Agreement 1,097 $56,911,647 $30,229,933 $87,141,580

Roads Agreement 233 $35,365,976 $10,851,708 $46,217,683

Service-wide Master Memorandum of Understanding 16 $0 $0 $0

Stewardship Agreement 11 $2,870,665 $310,457 $3,181,123

GRAND TOTAL 8,931 $1,020,362,905 $461,766,838 $1,482,129,743

* Includes ARRA funding and associated projects.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-45

Challenge Cost-share Agreements

Estimated Funding by Budget Line Item

($$ in thousands)

Budget Line Item

Forest Service 

Contribution

Partner 

Contribution Total Value

Forest Service 

Contribution

Partner 

Contribution Total Value

Forest Service 

Contribution

Partner 

Contribution Total Value

Forest and Rangeland Research $1,748 $462 $2,210 $862 $337 $1,199 $5,771 $3,487 $9,258

State and Private Forestry $2,584 $1,641 $4,225 $3,010 $3,961 $6,971 $4,465 $3,093 $7,558

Land Management Planning $450 $4 $454 $1,200 $1,384 $2,584 $73 $63 $136

Inventory and Monitoring $1,552 $459 $2,011 $3,614 $1,241 $4,855 $5,245 $1,685 $6,930

Recreation, Wilderness, Heritage Mgt $3,091 $12,694 $8,192 $2,671 $3,328 $5,999 $5,754 $11,595 $17,349

Wildlife and Fish Habitat Mgt $2,763 $5,427 $8,190 $3,789 $9,010 $12,799 $5,919 $5,729 $11,648

Grazing Management $178 $914 $1,092 $419 $183 $602 $118 $119 $237

Forest Products $282 $15 $297 $415 $67 $482 $377 $446 $823

Vegetation & Watershed Mgt $3,242 $3,398 $6,640 $2,586 $2,743 $5,329 $2,968 $2,848 $5,816

Minerals and Geology Mgt $262 $109 $371 $341 $329 $670 $313 $193 $506

Landownership Management $75 $9 $84 $26 $16 $42 $242 $618 $860

Job Corps $401 $0 $401 $1,339 $0 $1,339 $728 $0 $728

Wildland Fire Management $1,081 $556 $1,637 $1,449 $817 $2,266 $3,064 $1,112 $4,176

Facilities $488 $188 $676 $376 $1,411 $1,787 $226 $237 $463

Roads $1,496 $1,633 $3,129 $661 $1,506 $2,167 $878 $588 $1,466

Trails $3,214 $4,969 $8,183 $5,091 $5,522 $10,613 $7,200 $4,168 $11,368

Other $670 $0 $670 $770 $388 $1,158 $964 $1,704 $2,668

FY 2007 FY 2008 FY 2009
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-46

Reforestation

The Forest and Rangeland Renewable Resources Planning Act of 1974 (RPA) (P.L. 93-378), as amended 

by the National Forest Management Act of 1976 (NFMA) Section 3(d)1, directs that all forested lands in 

the National Forest System (NFS) be maintained in appropriate forest cover with species of trees, degree 

of stocking, rate of growth, and conditions of stand designated to secure the maximum benefits of 

multiple use sustained yield management in accordance to land management plans. It further requires the 

Secretary of Agriculture to identify and report to the Congress, at the time of submission of the 

President’s Budget together with the annual report provided under section 8 (c) of the Act, the amount 

and location, by national forest and State and by productivity class, where applicable, of needs to reforest 

areas that have been cut-over or otherwise denuded or deforested.

The reforestation program includes artificial regeneration, seeding, and natural regeneration. Forest and 

stand level management objectives may be jeopardized without appropriate reforestation treatments. 

Untreated areas may have elevated risk to losses from future insect or disease epidemics, wildfires, and 

other disturbance events. The reforestation program has four major goals: maintain all NFS forestlands in 

appropriate forest cover; improve the quality and yield of the timber resource; accelerate the attainment of 

desired species composition; and develop and demonstrate successful reforestation methods and 

techniques. 

Reforestation work is time-sensitive and without timely reforestation efforts, undesirable species can 

dominate making establishment of desired tree species difficult. Once undesirable species become 

established, decades may pass before sufficient numbers of appropriate tree seedlings occupy the site. 

Delays also increase the cost of reforestation work by necessitating expensive site preparation, reduce 

timber yields, and may adversely affect meeting other resource objectives. 

 

Prompt reforestation is desirable to prevent soil erosion and protect water quality in streams and lakes. It 

provides mitigation and facilitated adaptation to the effects of global climate change, effective long-term 

carbon sequestration and restoration of appropriate forest cover on impacted lands. Untimely 

reforestation adversely affects wildlife and fish species and reduces scenic quality and recreational 

experience. In addition, these areas are less resilient to the effects of fire and make it more difficult to 

protect surrounding communities. 

Program Plans and Accomplishments 

The agency’s reforestation capacity is dependent on several program areas, as well as numerous 

partnerships and cooperative agreements. Reforestation needs generated through timber harvest activities 

are generally met through the Knutson-Vandenberg (K-V) Act funds. However, reforestation need for 

areas outside timber sale areas will be primarily funded by the Integrated Resource Restoration program 

and the Reforestation Trust Fund. Corporate partners and civic groups are also contributors to the 

agency’s capacity for reforestation through matching fund agreements.

In FY 2009, the agency reforested a total of 269,345 acres. A significant portion of this accomplishment 

was funded with emergency supplemental funds (about 95,300 acres). More than 14,000 additional acres 

are projected for accomplishment in FY 2010 utilizing these supplemental funds appropriated in FY 2008. 

The agency’s reforestation accomplishment has been limited by the availability of nursery stock for 

planting. However, the agency has developed and is implementing a strategy to increase nursery 

production to meet projected reforestation needs generated by increased wildfire activity. As increased 

seedling production comes on line, further reforestation will be feasible.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-47

The agency’s unified reforestation target for FY 2011 is 288,400 acres. Approximately 178,400 acres 

(74,800 acres planting plus 103,600 acres certification of natural regeneration) will be accomplished 

using funds from the new Integrated Resource Restoration program. Included in these program funds is 

$10 million for reforestation specifically added to the program to mitigate the effects of climate change 

through reforestation of areas impacted by wildfire, insect and disease or other natural events. The 

agency will reforest an additional 110,000 acres utilizing the Reforestation Trust Fund and K-V Trust 

funds, and 4,000 acres accomplished through partnerships. The agency has currently identified 836,000 

acres of NFS lands that can benefit from reforestation. Actual accomplishments can vary significantly, 

depending on the type of treatment necessary to meet restoration objectives and the cost of that treatment. 

For example, unit costs for seeding are significantly lower than growing and planting seedlings.

This reforestation program level continues the build-up of the agency’s reforestation capability facilitated 

during FY 2008 and FY 2009 through the emergency supplemental funding for post fire rehabilitation. 

The proposed unified FY 2011 target is a significant increase above the FY 2010 target of 243,728 acres 

due to the proposed increase in the Integrated Resource Restoration program funding. This increase in 

funding for reforestation will target accomplishments to mitigate the potential effects of global climate 

change as well as restoration of areas impacted by wildfires. 

Figure 1 shows reforestation needs and accomplishments for FY 1997 through FY 2009. From FY 1997 

through FY 1999, there was a steady decrease in reforestation needs and accomplishments. Since FY 

2000, reforestation needs have accumulated largely due to large wildfires affecting national forests in the 

West and insect epidemics in the East. From FY 2000 through FY 2009, reforestation addressed about 22 

percent of the reforestation needs nationally. Since 2008 the agency has been building nursery stock 

production and reforestation capability. Funds provided through emergency supplemental appropriations 

have been instrumental in facilitating this increase in capacity. Increased accomplishments associated 

with these funds are reflected in the 2009 data displayed in the table below. Reforestation capacity, and 

the projected accomplishments for FY 2010, continues to reflect increases associated with these 

supplemental funds.

Figure 1 - Trends in Reforestation Opportunities, Accomplishments

and Percentage of Areas Treated: Fiscal Years FY 1997 – 2009

0

5

10

15

20

25

30

35

40

45

50

0

200,000

400,000

600,000

800,000

1,000,000

1,200,000

1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009

Current Reforestation Needs: Reforestation Treatments Percent of Needs Treated

A

c

r

e
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-48

Figure 2 shows the relative significance of various contributing factors on reforestion. Since the decline 

in regeneration harvest in the 1980s, the majority of the additional reforestation areas result from wildfire, 

particularly in the western regions. Identification of areas that would benefit from reforestation is the 

result of prompt assessment of the on-the-ground opportunity for effective treatment. The wildfire 

generated need is assessed and silvicultural prescriptions prepared outlining the sequence of treatments 

needed to effectively re-establish desired forest vegetation. This includes artificial regeneration either by 

planting or seeding as well as certification of natural regeneration when it is determined that sufficient 

seed producing trees remain on the site. These areas are scheduled for stocking surveys to assure that 

successful regeneration is taking place as planned.

Figure 2 – Addtions to Reforestation Needs: 

FY 2002-2009

0

50,000

100,000

150,000

200,000

250,000

300,000

2002 2003 2004 2005 2006 2007 2008 2009 Acres

Fiscal Year

a. Regeneration Harvest b. Fires c. Insects or Diseases d. Reforestation Failures

Wildfire

Regeneration

Harvest

Insects & Disease

Failures
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-49

Rehabilitation of Burned Areas

Post-fire Rehabilitation and Restoration

The following post-fire rehabilitation need information is provided in response to the request in the 

Conference Committee Report for the Department of Interior, Environment, and Related Agencies 

Appropriations Act, 2010 (P.L. 11-88). The Report requests “The conferees note that there have been 

extreme wildfires in recent years, which will require extensive rehabilitation and restoration activities. 

The Service is urged to provide a detailed assessment of future needs and accomplishments in the next 

budget request.”

Future Needs

The estimated funding needs of $246.1 million and accomplishments for post-fire rehabilitation is 

displayed below by category. Planned accomplishments for FY 2010 have been subtracted from the 

identified needs. The figures below do not include any additional needs that may result from the FY 2010 

fire season. The estimates will be refined as more comprehensive assessments of burned areas are 

completed.

Future Needs

Category Work Required

Reforestation 132,000 acres

Invasives 71,000 acres

Watershed/habitat 32,000 acres

Road/trails/boundary 5,500 miles

Stream habitat 300 miles

Facilities/infrastructure 2,000 sites
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-50

Accomplishments in FY 2008 and FY 2009

The most recent accomplishments in some major categories of post-fire rehabilitation include over 

314,000 acres of work including vegetation or landscape rehabilitation and 2,700 miles of work including,

stream restoration, road and trail rehabilitation, and landline boundary re-survey. This data provides 

information regarding the potential additional needs generated during severe fire seasons. The majority 

of these accomplishments utilized emergency supplemental funding appropriated by Congress late in FY 

2007 and FY 2008. The accomplishments are displayed by category in the charts below:

 

0

20000

40000

60000

80000

100000

120000

ACRES

Acres of Post-Fire 

Rehabilitation 

Accomplishments

2009

2008

0

500

1000

1500

2000

Miles

Miles of Post-Fire

Rehabilitation 

Accomplishments

2009

2008
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-51

Research and Development Threat Assessment Centers

The Eastern Forest and Western Wildland Environmental Threat Assessment Centers (EFETAC and 

WWETAC) are national leaders in developing knowledge and tools to protect and sustain the Nation’s 

forests and rangelands. The Centers partner with governmental agencies, universities, and nongovernmental organizations to improve the collective national capacity to predict, detect, and assess 

threats to forests and wildlands. The mission of the Centers requires them to be responsive to emerging 

issues and high-priority policy initiatives such as climate change, carbon sequestration, fuels 

management, and wildland fire risk. The work of the Centers is essential to ensuring that resource 

managers and stakeholders are equipped with the latest information and state-of-the-art technology.

($ in thousands)

Fund

FY09

Final

FY10

Enacted

FY11

President’s Budget 

Research $1,600 $1,600 $1,600

S&PF $1,600 $1,600 $1,600

WFHF 0 $400 $400

NFS $1,600 $1,600 $1,600

Total $4,800 $5,200 $5,200

FY 2011 Program Changes

2011 is expected to be a watershed year in the history of the Centers as they consolidate existing work 

into new areas of focus and continue product delivery as defined in their updated charters. Based on the 

scope of their work over the past five years, both EFETAC and WWETAC are nationally (and 

internationally) recognized for their work in comparative risk assessment, wildland fire modeling, threat 

interaction mapping, fuels treatment decision support systems, broad-scale vegetation monitoring, and 

climate change research, among others. The challenges now facing the Centers are increasing national 

recognition through better coordination and integration on nationwide issues, and conducting more 

effective communication and outreach.

Additional details on major on-going efforts are provided below. 

FY 2010 Planned

In FY 2010, the Centers will focus on implementing the recommendations suggested by the Washington 

Office review report by incorporating these actions into their programs of work and administrative 

processes. One notable activity will be the creation of a joint Technical Users Group to help improve 

service to stakeholders. Efforts are underway to identify individuals to serve on the users group, and begin 

planning a process of engagement with the Centers. The deployment of an early warning system using 

remote and site-level data to detect changes in vegetation will continue with an increased focus on 

merging of eastern and western efforts. The system will allow rapid detection and assessment of 

environmental disturbance at multiple scales. A new threat mapping system will be made accessible 

through the Internet and will provide improved information on the intersection of multiple threats—

allowing users to model risk to a user-selected mix of environmental values. Additionally, an existing 

wildfire risk analysis and decision support framework for vegetation management projects will be 

updated, documented and delivered to users. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-52

The Centers will continue with the delivery of science knowledge. In an effort to expand the dialogue on 

climate change and/or invasive species, the Centers plan to invite internationally recognized experts to 

workshops and continue to publish policy-relevant papers. Climate change research will continue to be 

addressed through the generation and integration of information. 

Past Performance

In FY 2009, the Centers produced several important new products:

Western Wildland Environmental Threat Assessment Center

 The WWETAC worked with the Western Forestry Leadership Coalition (WFLC) to convene a 

series of workshops to identify threats to the viability of private forests and forestry in the West. 

Five workshops were held in different regions around the West, and brought together 

representatives from state forestry and wildlife agencies, Tribes, local government, US Forest 

Service, Bureau of Land Management, industry, academia, conservation organizations, and most 

importantly, private forest landowners.

 A major effort by western Center scientists and collaborators reached an important threshold this 

year, providing land managers with a cohesive, coherent, model to help predict the interacting 

behavior of fire and bark beetles under selected climate change scenarios at multiple scales. A 

pilot project to test this model at the national forest scale is scheduled to begin in 2011.

 The results of a project study sponsored by WWETAC and the Pacific Northwest Research 

Station showed that it was possible to produce a national map of current vegetation at a useful 

scale. The study—done in collaboration with the Northern Research Station and Michigan State 

University—focused on up to seven mapping zones across the U.S representing a range of 

ecological conditions. 

 The WWETAC is the technical co-lead on the Wildland Fire Leadership Council’s Wildfire Risk 

Monitoring Project. The project objective is to calculate nationwide wildfire risk maps. A 

prototype analysis has been completed for the State of Oregon and will be published as a general 

technical report when reviews are completed later this year.

Eastern Wildland Environmental Threat Assessment Center

 The Eastern Center launched the Comparative Risk Assessment Framework and Tools 

(CRAFT)—a user friendly, Web-based support system that helps natural resource managers 

address uncertainties inherent in land management decisions. EFETAC offered a training 

workshop, with additional sessions planned for 2010. Tutorials, a wiki-inspired tool, and real-life 

case studies are available on-line at http://CRAFT.forestthreats.org. 

 Progress continues on EFETAC’s early warning system. The Center’s partnership with NASA’s 

Stennis Space Center produced a series of seamless, contiguous United States (CONUS) 

phenology (seasonal changes in vegetation) datasets. The early warning system will use 

phenology data in its change detection models for identifying forest threat locations and tracking 

patterns of progression. Online viewers for the data will soon be available.

 A wide range of users can now view landscape patterns in Google Earth. EFETAC recently posted 

several Google Earth applications to enable visualization of three landscape and forest spatial 

metrics at local to national scale. This work was completed in response to the need for improved 

visualization tools as called for by readers of official forest assessment reports. Examples, links 

and instructions may be found at http://www.forestthreats.org/tools/landcover-maps.

 The EFETAC’s researchers developed a modeling system that fully budgets annual water 

availability for water supply and demand from multiple users in the Southeast. The simulation 

system benefits water resource planners addressing water shortages. The Center’s assessment of 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-53

long-term impacts of projected changes in climate, population, and land use/land cover on 

regional water resources is critical to the sustainable development of the southeastern United 

States. 

 The EFETAC is working on a collaborative project to update the Climate Change Resource 

Center (CCRC, www.fs.fed.us/ccrc/) to better reflect eastern issues. To gain a complete national 

perspective, the Southern Research Station, Northern Research Station, and EFETAC—with 

input from Regions 8 and 9 and Northeastern Area—will expand the CCRC scope to include 

eastern United States climate change research and resources.

 The EFETAC researchers are interacting with fire managers across the eastern U.S. to assess the 

value of Fire Program Analysis (FPA) products and have identified reasons why fire behavior 

models may perform poorly in the east relative to the west. Future work will address these 

deficiencies and improve the reliability of the modeling tools.

 The EFETAC initiated a Region 8 partnership to develop a template to enhance integration of 

climate change science into forest management and planning. The project, titled Template for 

Assessing Climate Change Impacts and Management Options (TACCIMO), will produce a webbased user interface that will provide the best available science and climate projections in a 

format relevant to the needs of forest managers and planners within the agency or in state or 

private organizations. 

Program Overview

Eastern Forest Environmental Threat Assessment Center 

The EFETAC is engaged in multiple projects at the forefront of technology development and application 

in forest threat detection and assessment. Research conducted with the National Forest Health 

Monitoring Research team is looking beyond simple changes at a single location to the pattern of change 

across broad landscapes. Researchers are using new protocols to develop new indicators of landscape 

change, and providing land managers and policy makers with new tools for strategic planning. 

Additionally, Southern Global Change Program research addresses forest ecosystems, water quality, 

biodiversity, and wildfires—all with an emphasis on climate change and global warming. 

Western Wildland Environmental Threat Assessment Center 

The WWETAC has made significant progress in its mission to provide early detection and prediction of 

the potential effects of multiple, interacting threats and stresses. It has hosted workshops and conferences 

to identify and synthesize current knowledge regarding threat assessment and improving predictive 

modeling. WWETAC initiated collaborative agreements with universities, government (local and federal) 

partners, and non-governmental organizations to advance the application of remote sensing and geospatial 

technologies, and make assessment tools and data more accessible to analysts and managers. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-54

Service First

Service First is a partnership authority for the Forest Service, the Bureau of Land Management (BLM), 

the National Park Service (NPS), and the U.S. Fish and Wildlife Service (FWS). (P.L. 106-291 as 

amended in 109-54, Title IV, Section 428). Service First authority was extended to 2011. The Forest 

Service continues to strengthen its partnership with the BLM, NPS, and FWS to attain the three Service 

First goals of improving natural and cultural resource stewardship, providing better customer service, and 

increasing operational efficiency. 

Service First does not have its own budget line item in the Forest Service but instead is funded from 

several budget line items within the National Forest System appropriation. 

FY 2011 Service First Goals 

FY 2011 goals will build on successes of previous years and explore new opportunities for interagency 

collaboration. The Forest Service will continue to work toward a seamless technology system by 

developing joint access to the more complex databases including GIS, invasive weed inventories, and 

other natural resource data. In addition, the agency will continue to explore establishing joint land 

management targets with the other agencies where appropriate. 

Co-location is a major step toward greater inter-agency communication and integration of natural 

resource management across the landscape. Agencies will continue to explore and implement co-location 

opportunities where feasible and appropriate. 

For FY 2011, Service First objectives include continuing to make advances in creating an integrated 

information technology system where employees will be able to access other agencies’ data and systems 

while maintaining appropriate security levels. Access to other agencies’ information will provide more 

seamless customer service and improve operational efficiency for shared employees and co-located 

offices. 

Another goal in FY 2011 is to increase coordination across resource programs such as conserving water, 

hazardous fuels reduction, landscape scale species conservation, sustaining our rural communities, 

nurturing youth through education and connections to the outdoors, minerals and energy policy, visitor 

services, protecting special places and recreation management including OHV and trail management in 

support of providing quality natural resource management. 

Finally, the agencies plan to build a strong interagency network with focused tools and regular outreach 

and information exchange such as best practices on Service First opportunities, challenges, and successes. 

FY 2009 Accomplishments

The agencies have made steady administrative progress during a transition of Service First national 

leadership. The Memorandum of Understanding was extended to September 30, 2011, and the national 

Support Team continued to develop new language to improve consistency between agencies in the use 

and application of Service First authority. The agencies also built an inter-agency website to foster this 

interaction and information exchange and provide contacts and information in the form of a toolbox for 

employees’ use.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-55

Examples of Field Accomplishments

The Grand Canyon-Parashant National Monument in northern Arizona is jointly administered by BLM 

and NPS. It successfully piloted a more efficient means of transferring funds between agencies using a 

“Service First 1151 Transfer Request” form. This new process can be used for personnel, equipment, 

lease and other costs shared among agencies at Service First units, and moves forward the Service First 

goal of developing protocols for Nation-wide use. 

The San Juan Public Lands Center in Durango, Colorado, is a FS and BLM integrated unit where 

managers are delegated to act for both agencies across 2.6 million acres of National Forest and BLM 

system public lands. The Center continues in its ninth year of integration, striving to manage an entire 

landscape seamlessly across jurisdictions to improve land health, oversee multiple use activities 

consistently, and provide better service to the public and increase efficiencies. The San Juan is currently 

working to complete the first ever, joint land and resource management plan for both agencies' lands.

The Southern Nevada Agency Partnership (SNAP) of BLM, FS, FWS and NPS had many 

accomplishments from their numerous interagency teams. These include the completion of their Science 

and Research Strategy, which integrates and coordinates scientific research efforts across million acres of 

federal land, and includes an interagency review process for research project proposals; launching the 

SNAP.gov website to provide seamless information online about programs and lands managed by the 

SNAP agencies; completing the SNAP Outreach Project Plan; recording by volunteer site stewards five 

petroglyph sites; and what may be the Nation’s first location where all four agencies use the same survey 

protocols to collect information on visitor use, the FS’s National Visitor’s Use Monitoring (NVUM) 

program. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-56

Biomass Gasifier Powers Winn Ranger District 

Office on Kisatchie NF

A BioMax®25(kW) gasifier that uses wood chips 

as fuel was recently unveiled on the Kisatchie 

National Forest, Winn Ranger District, making it 

the first Ranger District Office to use biomassgenerated electricity. The fuel operates a generator 

to take the place of utility supplied power to the 

building. The unit will make maximum use of storm 

and logging debris and woody understory brush.

Sustainable Operations

The Forest Service is reducing its environmental footprint through sustainable operations and has a 

growing number of initiatives in place. As stewards of the Nation’s forest and grasslands, the Forest 

Service is committed to efficiently using energy and reducing consumption of resources in our daily 

operations. The agency is working hard to be a leading example of a green organization and model 

sustainable practices throughout all aspects of Forest Service program management and delivery.

Past Performance

In FY 2009 and into FY 2010, the agency established priorities and began integration across boundaries 

resulting in more sustainable practices related to energy and water conservation; transportation 

efficiencies; waste management; green purchasing; sustainable facilities management; and the 

implementation of an environmental management system. A few examples of progress in the areas of 

energy conservation, fleet and transportation, water conservation, and green purchasing are detailed 

below:

• Over 200 computer rooms will be 

consolidated into 2 locations in FY 

2010, lowering power consumption by 

80%.

• Region 10 uses six solar/wind/battery 

powered units for remote sites 

providing 835 KWh/season. 

• The Yates/Rosslyn Shuttle, providing 

regular transportation between 

Arlington and Washington DC Forest 

Service offices now uses a biodiesel 

powered vehicle cutting greenhouse 

gas emissions by 78%.

• As of March 2009, 515 

Videoconferencing (VTC) units have 

been installed, with some capacity in 

every Region/Station/Area. This 

capability is especially useful in 

remote locations such as Region 10.

• The Smokey Bear Ranger District on the Lincoln NF installed a rain harvesting system estimated 

to capture 33,708 gallons of water each year.

• The Forest Service has purchased 5,747 Energy Star certified computers as of February 2009. 

100% of Forest Service monitors are now Electronic Product Environmental Assessment Tool 

(EPEAT) certified—a program of the Green Electronic Council which assesses energy efficiency 

and environmental impact.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-57

FY 2011 Program Plans

Fulfill Executive Orders and align with the Climate Change Implementation Plan:

• Tracking, reporting and monitoring consumption data in fleet, energy, water, green 

purchasing, waste management and sustainability leadership– through a web-based 

interface.

• Institutionalizing a national Environmental Management Service (EMS) into Sustainable 

Operations reporting and reduction efforts.

Facilitate Partnerships:

• Establish partnerships with key Federal organizations, States, and communities to facilitate 

accomplishments in energy and water conservation (Department of Energy (DOE), 

Environmental Protection Agency (EPA), National Renewable Energy Lab (NREL), Department 

of the Interior (DOI), State of California, and the National Forest Foundation (NFF); as well as to 

facilitate accomplishments in transportation efficiencies by partnering with NREL and General 

Services Administration (GSA), and the District of Columbia local government.

• Establish stronger connections through youth, community and academic partnerships to support 

lifelong environmental learning.

Create an Informed Citizenry:

• Connect people to their local environment and get them to act to enhance it. Expand activities 

like National Get Outdoors Day.

• Establish sustainable operations education and training components for targeted audiences 

including: supervisors and managers; contractor officers (CO), CO Technical Representatives, 

and procurement agents; information technology; engineering, landscape architects, facility 

managers, and fleet managers.

External Report Accomplishments:

• Maintain a publicly accessible website with quality information and expand social media efforts.

• Publish a stakeholder accomplishment report addressing the agency’s progress and impacts once 

every two years.

FY 2012 outlook:

• Provide a transition strategy to institutionalize sustainable operations efforts throughout all staffs 

and areas of responsibility within the agency. 

• Consult and coordinate with other Climate Change Framework Teams and experts. Continue 

action items identified in the national sustainable operations strategy and expand activities to 

accelerate the achievement of goals established by EO 13423.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-58

Unobligated Balances

Overview

The following table contains the Forest Service unobligated balances from all prior year appropriated 

funds (regular and emergency) carried forward into FY 2010. The table does not include the unobligated 

balances from offsetting collections such as reimbursable or advanced collections. The appropriation 

totals are actual amounts; however, the program amounts are estimates. 

FY 2009 Forest Service - Unobligated Balances

(Dollars in Thousands)

Forest Service Appropriation / FY 2009

Budget Line Item / Extended Budget Line Item Unobligated Balances

Forest and Rangeland Research

 Research and Development $24,946

Total, Forest and Rangeland Research $24,946

State and Private Forestry

 Forest Health - Federal Lands $8,012

 Forest Health - Coop Lands $1,966

 State Fire Assistance $4,942

Volunteer Fire Assistance $3

 Forest Stewardship $1,448

 Forest Legacy Program (SPLG) $2,445

 Urban and Community Forestry $3,276

 Economic Action Programs $2,180

 Forest Res Info & Analysis $247

 Emergency & Disaster $193

 International Forestry $121

Total--State and Private Forestry $24,833

S&P Land and Water Conservation Fund $782

Total—S&P Land and Water Conservation Fund $782

National Forest System

 Land Management Planning $3,885

 Inventory & Monitoring $8,721

 Recreation, Heritage, and Wilderness $5,718

 Wildlife and Fisheries Habitat Management $6,121

 Grazing Management $2,385
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-59

Forest Service Appropriation / FY 2009

Budget Line Item / Extended Budget Line Item Unobligated Balances

 Rehabilitation and Restoration $2,548

 Forest Products $24,786

 Vegetation and Watershed Management $9,971

 Minerals and Geology Management $6,401

 Landownership Management $3,714

 Law Enforcement Operations $5,308

 Valles Caldera National Preserve $441

 Disaster Fund Supplemental $1,384

Total--National Forest System $81,383

Wildland Fire Management

 Preparedness $48,988

 Hazardous Fuels Management $14,449

 Fire Operations - Suppression $357,068

 NFP Forest Health - Federal Lands $3,054

 NFP Forest Health - Coop Lands $918

 NFP State Fire Assistance $6,361

 NFP Volunteer Fire Assistance $26

 Rehabilitation & Restoration $20,295

 NFP Research Activities $1,412

 Joint Fire Sciences $6,935

Total--Wildland Fire Management $459,506

Capital Improvement and Maintenance

 Construction Disaster Fund Supplemental $13,231

 Facilities Capital Improvement/Maintenance $28,793

 Roads Capital Improvement/Maintenance $22,578

 Trails Capital Improvement/Maintenance $5,293

 Legacy Roads $12,095

 Spectrum Relocation $20,304

 Deferred Maintenance $11,059

Total--Capital Improvement and Maintenance $113,353

Land Acquisition--Land and Water Conservation Fund 

 Land Exchange Acquisitions $12,746

Total--Land Acquisition/L&WCF $12,746

Other Appropriations

 Range Betterment Fund $631

 Gifts, Donations, and Bequests for Research $151

 Subsistence Mgmt (R10) $726

Total--Other Appropriations $1,508

GRAND TOTAL $720,057

Table Note: Does not include balances from American Recovery and Reinvestment Act funds.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-60

USDA Working Capital Fund and Greenbook Charges

Background

The Forest Service, as an organizational entity of the U.S. Department of Agriculture, is provided 

administrative services managed centrally on behalf of the Department. These centrally administered 

programs are broken into two activities: the Working Capital Fund (WCF) and Greenbook. 

The Interior Subcommittee on Appropriations requires a 3-year display of total costs paid by the Forest 

Service for these centrally administered programs. It is important to note that cost estimates for actual 

usage programs have changed in the last 3 fiscal years in response to demand for services on the part of 

the Forest Service. The Forest Service estimates for the activities assessed on a Full-time Equivalent 

(FTE) or standard methodology are likely to better reflect Forest Service shares of total costs, but these 

may vary during execution. 

USDA Working Capital Fund

The Working Capital Fund (WCF) includes financial and administrative services provided with funding 

under the authority of 7 USC 2235. WCF is a financing mechanism supporting more than 20 activity 

centers across 5 Department-level organizations. These centers provide services to all USDA agencies, 

including the Forest Service, and a large number of non-USDA entities. Customers reimburse activity 

centers for the cost of services provided.

WCF-supported activities do not receive appropriated funds and are not subsidized from other funding 

sources. All costs are recovered through reimbursements from serviced customers. The estimated 

reimbursement from customers represents their projected share of costs to deliver service. Under terms of 

the general provisions in annual appropriations to USDA, agency administrators must authorize the 

billing of their agency for services they receive. The Chief of the Forest Service, or his duly appointed 

representative, must sign an agreement at the beginning of the fiscal year authorizing billing for services 

provided and supplying the appropriate accounting data.

The Forest Service serves as one of the overseers in the review of cost estimates for the National Finance 

Center through its participation in the WCF Executive Committee, a body comprising of representatives 

of various USDA agencies. The Executive Committee is charged with making budget recommendations 

and advising the Department’s Chief Financial Officer as to the financial effectiveness of WCF. The 

Forest Service actively works with the Department’s Chief Financial Officer to review activities included 

in the Greenbook and the basis for any costs attributed to the Forest Service. 

On the following page is a table displaying Forest Service assessments for USDA working capital fund 

services. On subsequent pages is a table describing WCF services provided by the USDA.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-61

FY 2009 – FY 2011 Working Capital Fund Assessments for the Forest Service

FY 2009 *FY 2010 **FY 2011

Orgn Activity Actual Estimate Request

OCFO National Finance Center Agency Specific 

Agreements

4,196,489 2,973,041 3,014,664 

National Finance Center Gov’t Employee Services 5,355,059 6,439,749 6,529,905 

Financial Systems 36,381,790 35,806,061 36,307,346 

Comptroller Operations Services 11,517,852 11,768,994 11,933,760 

Internal Control Support Services 132,751 117,260 118,902 

A-123 Support Services 362,910 352,250 357,182 

Lean Six Sigma Grants Process Services 46,536 46,536 47,188 

OC Broadcast Media and Technology Center 302,378 363,183 368,268 

Creative Services Center (formerly VCC) 369,423 237,125 240,445 

OCIO National Telecom Services 1,548,297 1,548,297 1,569,973 

Telecom Customer Services Center (TCSC) 262,306 262,306 265,978 

Network Services 893,481 893,481 905,990 

Computer Services Network Support 615,388 615,388 624,003 

DA Central Supply Stores 263,272 313,844 318,238 

Central Forms and Pubs - Transport Costs 46,240 36,393 36,904 

Copier Services 480,113 591,879 600,165 

Printing and Duplication Services 119,887 119,887 121,565 

Mail Prep and Courier Services 12,035 11,783 11,948 

Departmental Mailing List Systems 35,479 34,729 35,215 

Procurement Systems Operations 7,484,952 8,641,421 8,762,401 

Mail Distribution Services 1,406,791 1,377,042 1,396,321 

CFPDC Agency Forms and Pubs Storage 514,974 514,974 522,184 

CFPDC Departmental and Standard Forms 262,085 636,690 654,604 

Central Shipping and Receiving 51,387 9,249 9,378 

Central Excess Property Operations 67,937 64,848 65,756 

Central Excess Property -Rehab Furniture Services 1,731 1,731 1,755 

Executive Secretariat 553,218 542,481 550,076 

 ***Subtotal for Agency Requested Services 73,284,761 74,320,622 75,370,114 

OCIO National Information Technology Services 9,399,953 9,859,204 9,997,233

Enterprise Shared Services 6,635,646 6,635,646 6,728,545

NITC Financial Services 2,659,331 2,659,331 2,696,562

 Total for Agency Requested Services 91,979,691 93,474,803 91,395,953 

Table Notes:

* FY 2010 Figures reflect a combination of estimates received to date, and estimates based on FY2009 actual costs.

**FY 2011 Request is an estimate based upon the non-pay inflation increase of 1.4%. 

***Subtotal does not include the use of reimbursable agreements requested in order to obtain services from the Department of 

Agriculture’s National Information Technology Center.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-62

WCF ACTIVITIES

Cost Recovery Methodologies

Activity Description Cost Distribution

National Finance Center Agency 

Specific

Provides: 1. Payroll/Personnel services 

to USDA/Non-USDA agencies 2. 

Applications support to Office of 

Personnel Management. 3. Record

keeper/other services to support the 

Thrift Savings Plan 4. Support services 

for USDA accounting applications 5. 

PKI licenses/support

Beginning in FY 2005, services 

provided by NFC will be negotiated 

between NFC and serviced agencies.

The nature, volume, and cost of 

services will serve as the basis for 

Memoranda of Understanding 

between the parties

National Finance Center Government 

Employee Services

Provides: 1. Payroll/Personnel services 

to USDA/Non-USDA agencies 2. 

Applications support to Office of 

Personnel Management 3. Record

keeper/other services to support the 

Thrift Savings Plan 4. Support services 

for USDA accounting applications 5. 

PKI licenses/support

Beginning in FY 2005, services 

provided by NFC will be negotiated 

between NFC and serviced agencies. 

The nature, volume, and cost of 

services will serve as the basis for 

Memoranda of Understanding 

between the parties.

Financial Systems Operates/maintains the following 

systems: 1. Foundation Financial 

Information System (FFIS - core 

accounting) 2. Real property 3. 

Corporate integrated administrative 

payments 4. Other systems as necessary 

to support program agency missions and 

fulfill USDA’s fiduciary responsibilities 

to taxpayers

Financial/Adm. Pmts: Costs 

recovered based on agency share of 

FFIS workload (measured in general 

journal records) Real Property: Costs 

recovered basis on agency shares of 

USDA-owned and 

GSA/commercially-leased property

Comptroller Operations Services Provides: 1. Core accounting/reporting 

services 2. Agency-specific services 3. 

Operates a corporate controller 

organization that integrates 

accountability and systems across 

USDA

Agencies are billed 1/12-per-month 

their estimated annual charges

Internal Control Support Services

A-123 Support Services

Lean Six Sigma Grants Process 

Services

Competitive Sourcing Provides Department-level 

coordination/guidance to agency efforts 

to comply with competitive 

sourcing/OMB Circular A-76 

requirements

Costs are recovered from customers 

on the basis of their respective 

number of positions each customer 

agency has in the 2002 FAIR Act 

inventory.

Broadcast Media and Technology 

Center

The Broadcast Media and Technology 

Center (BMTC) provides a wide array 

of video production and 

teleconferencing (both audio and video) 

services.

Agency shares (in pct.) are based on 

the most recently completed fiscal 

year billings for services. Actual 

costs reflect use of the service and are 

based on hourly rates for services 

purchased.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-63

WCF ACTIVITIES

Cost Recovery Methodologies

Activity Description Cost Distribution

Creative Services Center (formerly

VCC)

The Visual Communication Center 

offers a variety of graphic production 

and exhibit and visitor center 

planning/fabrication/development 

services; the Center also provides web 

page graphic design services.

Agency shares (in pct.) are based on 

the most recently completed fiscal 

year billings for services. Actual 

agency costs are based on needed 

labor hours, contractual costs, and or 

direct materials needed for the 

delivery of a product to the 

requesting agency.

NITC – IT Services Provide mainframe computer operations 

and application development and 

support services to support agency 

programs. NITC also provide IT 

consulting services and training, and 

support the data warehouse support to 

FFIS.

Agency percentages are based 

estimates of services to be provided 

to users during the current fiscal year. 

Actual costs are based on the cost of 

services provided to requesting 

agencies under terms of interagency 

agreements.

National Telecom Services Provide centralized telecommunications 

support services nationwide for the 

USDA; manages and provide internet 

access to USDA agencies and data 

connections between agencies (USDA 

Intranet); assists agencies in using 

telecommunication services in a costeffective manner.

Agencies shares (in percentage) are 

based on prior year agencies 

utilization of voice and data 

telecommunication services. Actual 

costs for technical and data services 

are recovered via distribution through 

the WCF.

Telecom Customer Services Center 

(TSCS)

Manages and maintains the USDA’s 

voice telephone services in the WMA 

that serves as the single point of contact 

for all local requests for telephone 

services and purchases; manages and 

administers the nationwide Voice Mail 

System; provides maintenance services 

for telephone equipment in the WMA 

and voice mail services.

Agency shares (in pct.) are based on 

the number of telephone lines in the 

WMA and the number of voice 

mailboxes on the primary node.

Network Services Provides technical/operational 

assistance on data networking 

telecommunications systems; designs, 

installs, operates, and manages shared 

services provided on Departmental 

networks and platforms; participates in 

the design, engineering, and operations 

management of the Enterprise Network.

Agency shares (in pct.) are based on 

FY 2003 FTE for the USDA facilities 

serviced by the Departmental LAN 

and e-mail usage.

Computer Services Network Support Provide LAN, Desktop, Application, 

and Web development support and 

maintenance to the Office of the 

Secretary (OSEC).

Basic services for OSEC are paid by 

Office of Chief Information Officer 

(appropriate). The cost for the 

support services to Under and 

Assistant Secretaries are distributed 

among agencies based on estimates 

fiscal year nationwide FTEs.

Enterprise Shared Services
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-64

WCF ACTIVITIES

Cost Recovery Methodologies

Activity Description Cost Distribution

Central Supply Stores Provides required office supplies to the 

Office of the Secretary and USDA 

agencies in the Washington 

metropolitan area; provides nation-wide 

supply support to the meat and poultry 

inspectors for the Food Safety 

Inspection Service.

Agency shares (in pct.) are based on 

actual use of store services in the 

most recently completed fiscal year. 

Actual costs are recovered on the 

basis of the acquisition cost of 

supplies procured by agencies, plus 

an overhead charge.

Central Forms and Pubs – Transport 

Costs

Provides Acq (Printing), Warehouse, 

and worldwide distribution of adm 

forms and pub for all USDA agencies 

and non-USDA agencies; provides 

warehouse distribution of agency 

program and pub for all USDA agencies 

and for other participating govt 

agencies;

Based on the most recently completed 

fiscal year.

Copier Services Provides centralized copier facilities and 

equip for employees in Washington DC, 

bldgs complex and nearby satellite 

locations (Riverdale Carver Center). A 

large inventory of pool/convenience 

copiers is placed within USDA agencies 

throughout DC area.

Agency shares are based on prior 

year billings.

Printing and Duplication Services Provides full service and quick turn 

around printing for the Office of the 

Secretary and USDA agencies 

headquartered in the Washington 

metropolitan area.

Agency shares are based on prior 

year billings. Actual costs are based 

on use of the service at published 

rates.

Mail Prep and Courier Services Custom Mailing services to USDA 

Agencies

0.0399 cents/piece for each piece of 

mail stuffed. Miscellaneous Servs: 

flat fee of $10.00 for courier 

deliveries in the local metro area; 

$0.30/mile for chauffeur serv (plus 

overtime for drivers)

Departmental Mailing List Systems Maintains centralized mailing lists for 

agencies and staff offices and high 

speed printer service for reports 

production.

Agency shares are based on prior 

year billings.

Procurement Systems Operations Develops, implements, and maintains a 

suite of corporate acquisition software 

tools, streamlining processes, and 

providing procurement support to 

USDA agencies; develops, implements, 

and maintains an interface with the 

USDA corporate financial system.

Cost is distributed based on FY03 

actual agency use of the PURCH and 

PCMS systems. This will continue to 

be the cost recovery basis until IAS is 

fully implemented.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-65

WCF ACTIVITIES

Cost Recovery Methodologies

Activity Description Cost Distribution

Mail Distribution Services Central Mail: Central processing of 

incoming, outgoing, and interoffice 

mail; special handling services for 

priority items in the DC area. Door-toDoor: Pickup and delivery service of 

routine and special mailings in the DC 

downtown bldgs complex.

Central Mail/Door-to-Door: Agency 

shares are based on mail count 

samples taken by the Mail Unit.

CFPDC Agency Forms and Pubs 

Storage

Provides Acq (Printing), Warehouse,

and worldwide distribution of admin

forms and pub for all USDA agencies 

and non-USDA agencies; provides 

warehouse distribution of agency 

program and pub for all USDA agencies 

and for other participating govt 

agencies;

Agency Shares are based on the 

square footage of space for storage of 

agency forms at the CFPDC 

Warehouse.

CFPDC Departmental and Standard 

Forms

Provides Acq (Printing), Warehouse, 

and worldwide distribution of adm 

forms and pub for all USDA agencies 

and non-USDA agencies; provides 

warehouse distribution of agency 

program and pub for all USDA agencies 

and for other participating govt 

agencies;

Agency shares are based on costs of 

requisitions processed for AD and SF 

forms during the most recently 

completed fiscal year.

Central Shipping and Receiving Provides a central facility to ship and 

receive large items for USDA agencies; 

maintains facilities in the DC Buildings 

Complex and at the Beltsville Service 

Center.

Agency shares are based on the gross 

weight of shipments received in the 

most recently completed fiscal year.

Central Excess Property Operations Provides customer svc and disposition 

for all excess property for USDA and 

other fed agencies in Washington 

Metropolitan area under the concept of a 

Cooperative Admin Support Program 

(CASU): provides property rehab svcs 

in an effort to promote utilization of 

serviceable excess and rehab property in 

lieu of purchasing new property.

Excess Property Operations: Agency 

shares are based on FY 2005 FullTime Equivalents (FTE) for the 

Washington DC metropolitan area.

Central Excess Property – Rehab 

Furniture Services

Provides customer svc and disposition 

for all excess property for USDA and 

other fed agencies in Washington 

Metropolitan area under the concept of a 

Cooperative Admin Support Program 

(CASU): provides property rehab svcs 

in an effort to promote

Rehabilitation Services: Agency 

shares are based on FY 2002 actual 

billings for rehabilitated furniture.

Executive Secretariat Provides referral and correspondence 

control services to the Department for 

mail addressed to the Department, the 

Secretary, and the immediate office of 

the Secretary.

User percentages are based on a 

moving average of correspondence 

processed by the unit.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-66

Greenbook

Central Cost Distribution Programs: USDA agencies pay a share of costs for external programs 

through “Greenbook” assessments. The Forest Service share is determined in a manner 

consistent with that for every other agency in the Department. Assessments are broken down 

into two categories:

• Actual usage – costs are collected for programs such as GSA space, postage, 

unemployment and workers compensation based on actual costs incurred by individual 

agencies.

• Outside assessments – costs such as OPM Federal employment, FirstGov, and GSA blue 

pages are distributed to executive departments for reimbursement; the Department has no 

discretion as to the cost of the program. 

Departmental Reimbursable Programs: These costs provide funding for Department-wide 

initiatives authorized by the Office of the Secretary. Costs for these programs cannot be 

recovered on a usage basis and are generally distributed using an FTE methodology. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-67

FY 2009 – FY 2011 Forest Service Greenbook Costs

FY 2009 *FY 2010 **FY 2011

Actual Estimate Request

Central Cost Distribution Programs

 GSA Space - Agency 36,225,858 34,169,616 34,647,991

 DHS GSA Building Security - Agency 2,869,686 2,766,179 2,804,906

 U.S. Postal Service Mail 298,100 298,100 302,273 

 Unemployment Compensation 31,211,000 31,211,000 31,647,954 

 Workers Compensation 28,745,932 28,745,932 29,148,375 

 National Archives Records System 431,207 370,701 375,891

 Flexible Spending Accounts FSAFEDS 523,676 549,780 557,477

 OPM Federal Emply. Services and Admin Law Judges 172,727 172,727 175,145

 Government-wide Council Activities 178,283 178,283 180,779 

Total, Central Cost Programs 100,656,469 98,462,318 99,840,791 

Departmental Reimbursable Programs

 USDA Tribal Liaison 23,369 23,369 23,696 

 Faith-Based Initiatives & Neighborhood Partnerships 91,444 130,789 132,620

 Advisory Committee Liaison Services 42,456 65,235 66,148

 Hispanic Serving Institutions National Program 

(formerly HACU)

488,375 630,923 639,756

 1890 USDA Initiative 721,297 791,133 802,209 

 USDA 1994 Program (formerly AIHEC) 196,434 221,287 224,385 

 Diversity Council 173,742 167,244 169,585 

 Visitors Center 200,837 175,878 178,340

 Honor Awards 27,094 25,582 25,940

 Target Center 313,955 302,830 307,070 

 Drug Testing Program 66,300 66,300 67,228 

 Sign Language Interpreter Services 78,235 75,468 76,565 

 Sign Language Interpreter Services – Agency Specific 51,178 51,178 51,894

 Emergency Operations Center 746,787 768,109 778,863 

 Labor and Employee Relations Case Tracking and 

Reporting Sys

24,385 24,385 24,726 

 Continuity of Operations Planning 616,396 594,469 602,792 

 Personnel and Document Security 167,510 170,356 172,741

 Federal Bio-based Products Preferred Procurement 

Program

118,538 114,161 115,759 

 Radiation Safety 97,337 99,437 100,829 

 Self Service Dashboard and Retirement Processor Web 

App.

114,474 108,085 109,598

 Preauthorized Funding 880,565 831,435 843,065 

 Financial Management Improvement Initiative 1,720,370 1,720,370 1,744,455 

 E-Gov Presidential Initiatives 4,018,080 3,108,695 3,152,217

 E-Gov Presidential Initiatives HSPD12 4,329,334 3,671,700 3,723,104 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-68

FY 2009 *FY 2010 **FY 2011

 E-Gov Presidential Initiatives - Content Mgt 516,111 489,901 496,760 

 E-Gov Enablers Cyber Security 548,110 548,110 555,784 

 Enterprise Network Messaging 1,836,905 1,836,905 1,862,622

 USDA Enterprise Contingency Planning Program 

(formerly LDRPS)

302,785 302,785 307,024

 USDA IT Infrastructure Security 1,032,222 1,032,222 1,046,673

 FEMA Emergency Preparedness 78,883 78,883 79,987

 Consolidated Federal Funds Report 38,977 38,977 39,523

 GSA HSPD 12 Lincpass 619,869 619,869 628,547

 Transit Subsidy 1,147,169 1,147,169 1,163,229

Total, Reimbursable Programs 21,429,523 20,033,239 20,313,734 

TOTAL GREENBOOK 122,085,992 118,495,557 120,154,525 

Table Notes

* FY 2010 Figures reflect a combination of estimates received to date, and estimates based on FY2009 actual costs.

**FY 2011 Request is an estimate based upon the non-pay inflation increase of 1.4 percent over FY 2010 levels. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-69

GREENBOOK ACTIVITIES

Central Cost Distribution Programs

Activity Description Cost Distribution

General Service Administration (GSA) 

Space – Agency

Provides for the payment of rental to 

GSA for agency space, which is paid 

from agency funds. 

User percentages are based on 

occupied agency space which is not 

covered by the Departmental SLUC 

Appropriation.

DHS GSA Building Security - Agency Provides for the payment of security to 

DHS for non-appropriated funded 

agency security, which is paid from 

agency funds.

User Cost Estimates are based on 

security not covered in the central 

(Departmental) appropriation for 

security.

U.S. Postal Service Mail Provides reimbursement to the U.S. 

Postal Service (USPS) for mailing 

services provided to USDA agencies. 

User percentages are based on prior 

year usage. Adjustments are made 

prior to the end of the fiscal year, 

based on direct accountability, i.e., 

metered costs, sampling and 

anticipated increases in postal rates. 

Unemployment Compensation Provides reimbursement to the 

Department of Labor (DOL) 

unemployment trust fund for payment 

made to unemployed former USDA 

employees.

User percentages are based on 

reconciled agency charges for the 

previous fiscal year.

Worker’s Compensation Program Provides reimbursement to DOL 

unemployment trust fund for payment 

made to unemployed former USDA 

employees.

Distribution is based on reconciled 

agency cases and dollars.

Transit Subsidy In accordance with Executive Order 

13150, USDA is providing all 

qualifying employees nationwide a 

direct transit subsidy in order to reduce 

Federal employees contribution to 

traffic congestion and air pollution and 

to expand their commuting alternative.

Distribution is based on each 

agency’s percentage of the actual 

costs for each quarter.

National Archives Records System Effective in FY 2001, the National 

Archives became a fee-for-service 

records center. Each agency is assessed 

for costs associated with records in 

storage plus an additional amount for 

those Departmental staff offices that 

store agency records as a part of their 

function.

Distribution is based on each 

agency’s volume of records stored, 

plus a percentage of Departmentwide records stored based on nationwide FTEs.

OPM Federal Employment and 

Administrative Law Judges Service

This program reimburses OPM for 

Federal Employment Services and 

information provided to USDA 

Agencies.

Distribution is based on FY 2003 

nation-wide FTEs of each agency.

Government-wide Council Activities Reimburses GSA for projects of the 

Chief Financial Officers Council, Chief 

Information Officers Council, and 

Procurement Executive Council.

Distribution is based on current fiscal 

year nationwide FTE ceiling 

employment in each agency.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-70

USDA Tribal Liaison Program provides for travel for the 

national program director, support for an 

intern or other personnel, and other 

related programs. An update of the 

guide to USDA Programs for Native 

Americans was completed in 2005. 

Started in 2004.

Distribution is based on current fiscal 

year nationwide FTE employment 

ceilings for each USDA agency.

Faith Based Initiatives and NeighborHood PartnershipsProvides for Department level oversight 

of the USDA implementation efforts in 

this area and to support the White House 

Office of Faith-Based and Community 

Initiatives regional outreach 

conferences.

Distribution is based on current fiscal 

year nationwide FTE employment 

ceilings for each USDA agency.

Advisory Committee Liaison Services The immediate Office of the Secretary 

provides guidance and direction to 

USDA agencies on Advisory 

Committees and Boards. Costs to 

support this function and 

screening/selection of members are 

reimbursed from agencies to the Office 

of the Secretary.

Costs are distributed on the basis of 

the number of advisory committees in 

each agency.

Hispanic Serving Institutions National 

Program 

A program to foster educational 

excellence in the Hispanic community 

and to promote Hispanic participation in 

fulfilling the USDA mission.

Distribution is based on current fiscal 

year nationwide FTE ceiling 

employment in each agency.

1890 USDA Initiative Supports White House initiatives on 

Historically Black Colleges and 

Universities and USDA 1890 

institutions (Land Grant colleges and 

universities). USDA maintains an 

agricultural liaison office at each of the 

17 1890 campuses, including Tuskegee 

University.

Distribution is based on current fiscal 

year nationwide FTE employment 

ceilings for each USDA agency.

USDA 1994 Program Promotes, fosters, and encourages 

implementing programs for improving 

post-secondary and higher education 

opportunities for America Indians, and 

establishing information centers for 

post-secondary and higher education 

institutions.

Distribution is based on current fiscal 

year nationwide FTE ceiling 

employment in each agency.

Diversity Council This program supports the following: 

Hispanic Advisory Council, Secretary’s 

Advisory Council on Employees with 

Disabilities, Asian-Americans and 

Pacific Islanders Group, Native 

Americans Group, Womens Group, 

Gays and Lesbians Group. These groups 

provide the Secretary with ongoing 

advice on matters that affect their 

respective communities.

Distribution is based on the current 

years nationwide FTE employment 

ceilings for each USDA agency.

Visitors Center The Visitors Center is a showcase for 

USDA programs and initiatives.

Distribution is based on current fiscal 

year nationwide FTE employment in 

each agency.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-71

Honor Awards This program is designed to recognize 

significant accomplishments of USDA 

employees through the Departments 

highest honor awards program.

Distribution is based on the current 

year’s nationwide FTE employment 

ceilings for each USDA agency.

Target Center Supports the Departments workforce 

diversity and Federal Workforce 2001 

policies; provides information on 

technologies to ensure equal access to 

electronic technologies and automated 

systems essential to today’s jobs for 

people with visual, hearing, speech, 

mobility, or dexterity impairments.

Distribution is based on current fiscal 

year nationwide FTE employment 

ceilings for each USDA agency.

Drug Testing Program This program is mandated be Executive 

Order 12564 and PL 102-143. Its 

purpose is to help ensure a drug free 

work place with programs such as: 

random, reasonable suspicion, post 

accident, volunteer and applicant 

testing.

Distribution is based on each 

agencies percentage of the actual 

costs and a minimum charge of $50 

for all other agencies.

Sign Language Interpreter Services Provides interpretive services for 

Departmental programs and USDA 

agencies.

Distribution is based on current fiscal 

year nationwide FTE employment 

ceilings for each USDA agency. 

Agency-specific services will be 

billed directly to serviced agencies.

Emergency Operations Center Provides highly trained and secure 

emergency operations capability on a 

24/7 basis. As the entry point for 

Homeland Security and emergency 

disaster response information received 

by the Dept, the Center operates newly 

developed or enhanced critical 

communications and coordination 

systems.

Distribution is based on current fiscal 

year nationwide FTE employment in 

each agency.

Labor and Employee Relations Case 

Tracking and Reporting Systems

Labor and Employee Relations Case 

Tracking and Reporting System 

(LERACTRS) is the Departments 

enterprise web-based tracking system 

for employee and labor relations cases 

occurring within USDA.

Distribution is based on current fiscal 

year nationwide FTE ceiling 

employment in each agency.

Continuity of Operations Planning The Continuity of Operations Planning 

Division within the Office of 

Procurement and Property Management, 

Departmental Administration, is 

responsible for ensuring USDA 

complies with the requirements of 

Executive Order 12656.

Distribution is based on current fiscal 

year nationwide FTE ceiling 

employment in each agency.

Personnel and Document Security Responsible for ensuring the proper 

protection of classified national security 

information through the adjudicative 

process of personnel clearances; proper 

handling, storage and transmission of 

classified information.

Distribution is based on current fiscal 

year nationwide FTE ceiling 

employment in each agency.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-72

Federal Biobased Products Preferred

Procurement Program

This program was initiated to increase 

the awareness and understanding of biobased products: how we can use them 

within USDA; how they can be used by 

clients/customers across the country. 

Projects included increased marketing, 

developing a website and establishing a 

resource center open to federal agencies 

as well as the public.

Distribution is based on current fiscal 

year nationwide FTE ceiling 

employment in each agency.

Radiation Safety The Radiation Safety is responsible for 

administering the USDA radiation 

safety program including ensuring 

compliance with the licenses issued by 

the Nuclear Regulatory Commission 

(NRC) for use of radioactive materials 

in research and other programs. Six 

agencies use radioactive materials that 

require radiation safety overnight.

Distribution is based on usage of 

radioactive materials by agency 

personnel.

Self Service Dashboard and Retirement 

Processor Web Applications

This reimbursable program is a secure 

Department-wide web based system, 

which among other functions, captures 

service history, deposit/redeposit 

information, etc. FRB enables 

employees to fill out the appropriate 

forms online. It enables HR offices to 

calculate annuity estimates on demand.

Distribution is based on current fiscal 

year nationwide FTE ceiling 

employment in each agency.

Pre-authorized Funding This program provides a funding 

mechanism for reimbursable activities 

with costs less than or equal to $100,000 

involving other Federal departments and 

USDA.

Distribution is based on the current 

year nationwide FTE employment 

ceilings for each USDA agency.

E-Gov Presidential Initiatives To Improve IT planning through the 

expansion of electronic government to 

deliver significant productivity and 

performance gains across all federal 

departments.

Distribution is based on 50% of 

agency full-time equivalents (FTEs) 

and 50% of the agency IT 

development, modernization, and 

enhancement (DME) spending.

E-Gov Presidential Initiatives HSPD12 Mandates the establishment of a new 

standard for credentialing federal 

government employees and contractors

Distribution is based on 100% of 

agency full-time equivalents (FTEs). 

In FY 2006 the cost Distribution was 

based on a 50/50 blend of nationwide 

FTEs and Agency Development, 

Modernization and Enhancement It 

investment budgets submitted as part 

of the Exhibit 53 submission to 

OCIO.

E-Gov Presidential Initiatives –

Content Mgt

Content Management Services comprise 

a suite of three related modules that 

utilize and rely upon the core 

components of USDAs corporate 

document management infrastructure, 

Stellent, Oracle, and WebSphere. The 

Content Analysis Module (CAM) is 

designed to analyze and display content 

such as public comments regarding an 

issue or proposal.

Distribution is based on 50% of 

agency full-time equivalents (FTEs) 

and 50% of the agency IT 

development, modernization, and 

enhancement (DME) spending.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-73

E-Gov Enablers Cyber Security

USDA Enterprise Contingency 

Planning Program (formerly LSDRPS)

A tool used to compile Continuity of 

Operations (COOP) Plans, IT 

Contingency Plans, and Facilities 

Contingency Plans relating to recovery 

of vital business functions in the event 

of an incident or disaster

Distribution is based on services 

provided to business owners and 

supporting IT systems

USDA IT Infrastructure Security
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-74

Wood Education and Resource Center

FY 2009 

Allocation

FY 2010 

Allocation

FY 2011

President’s Budget

Wood Education and Resource 

Center (WERC) $2,673,000 $1,960,000 $960,000 

FY 2011 Program Changes 

The FY 2011 budget request includes $960,000 for the Wood Education and Resource Center (WERC), 

the same as the FY 2010 request. This is a decrease of $1.0 million from the actual 2010 funded amount. 

Funds will provide priority services and support to the eastern hardwood forest region, particularly the 

wood industry. At this level of funding, WERC anticipates that no new competitive grants will be issued. 

Salaries for support activities will be approximately $730,000, leaving $230,000 for operating and other 

expenses. WERC staff will conduct existing grant monitoring and provide technical assistance, training, 

and information transfer. 

In FY 2011, WERC will host or sponsor workshops 

and training to owners and managers of wood products 

businesses. In addition, WERC will provide technical 

assistance to the lessee of the WERC mill and shop in 

order to maintain a successful business operation that 

more fully utilizes the facilities and enhances 

employment opportunities to local residents. 

The Forest Service (FS) will provide technical 

expertise to industry, States, and other partners on 

wood processing, utilization of damaged timber, green 

building, and woody biomass, and will continue 

implementation of a woody biomass strategy. 

FY 2009 Accomplishments

In FY 2009, WERC awarded a total of $1.4 million to grant applicants for 20 projects. Many projects 

focused on maintaining or expanding the economic competitiveness and sustainability of wood products 

manufacturing businesses, ultimately leading to job creation as well as improved forest health and 

stewardship. Through the lease of the facilities, WERC generated approximately 20 private-sector wood 

industry jobs. WERC conducted six wood industry workshops on-site and sponsored more than 25 

workshops and training sessions at remote locations or on the web. These projects have resulted in a 

more productive and sustainable wood products industry in the Eastern U.S.

Program Description

Program Overview

WERC was started in 1999 when legislation was enacted directing the FS to assume ownership of the 

former Robert C. Byrd Hardwood Technology Center (RCBHTC) in Princeton, West Virginia. Under FS 

ownership and management, WERC focuses on primary and secondary wood processing, and woody 

Long-Term Fuel Supply Agreements for 

Wood Energy Facilities.

The difficulty of purchasing long-term supplies 

of woody biomass at stable prices has been a 

major barrier to expanding the use of wood for 

energy. With input from biomass suppliers and 

users, and funding from WERC, the Empire 

State Forest Products Association in Albany, 

NY developed two business models that may 

help overcome the greatest obstacles: 

availability of financing and fluctuating prices 

for diesel fuel. Details are included in the

following report: 

http://spfnic.fs.fed.us/werc/finalrpts/07-DG105.pdf
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-75

biomass utilization using multidisciplinary approaches within the 35 States of the eastern hardwood 

region. WERC projects focus on international and domestic hardwood industry competitiveness issues;

technology and information transfer; increasing communication, cooperation, and collaborative problem 

solving within the forest products industry; woody biomass utilization for energy; and green building 

issues and carbon storage in wood products.

WERC programs help maintain and improve wood industry productivity and competitiveness in a 

sustainable manner. Viable wood products markets enable sustainable forest management on private, 

State, and Federal lands. WERC staff includes a Biomass Coordinator position to provide woody biomass 

to energy leadership across the S&PF Northeastern Area.

Allocation and Partnerships

WERC accomplishes its mission through several 

venues including: 

• An annual competitive grants program; 

• Workshops and training held at WERC, on 

the web, and at other remote locations; 

• A web-site clearing house for information; 

• Biomass energy technical support through 

energy engineer consultants conducting 

prefeasibility evaluations of facilities 

considering conversion to woody biomass for 

heat and power; and 

• Regional operations in a cluster model at the 

Princeton WERC (research, technical 

transfer, and private industry partnerships onsite). 

Training programs focus on industry competitiveness, 

survivability, and sustainability issues. This focused 

effort will assist the wood industry in facing today’s critical challenges.

The annual grant program uses five criteria: 

1. Supporting economic competitiveness of the hardwood industries

2. Delivery of information and technology to wood products businesses

3. Advancing the development of technology and markets to address urgent issues 

4. Green building and carbon storage issues 

5. Increasing the sustainable use of woody biomass. 

WERC maintains and fosters partnerships with organizations, universities, non-profits, and for-profit 

organizations. WERC has invested $9.0 million in 144 projects in 26 states since 2005, in cooperation 

with the wood and forest industries. 

Heat Sterilization of Ash Firewood for 

Thermal Eradication of Emerald Ash Borer

Due to the potential risk associated with moving 

emerald ash borer (EAB) infested firewood, 

interstate movement of all hardwood firewood is 

currently restricted. Communities and firewood 

producers are now faced with decisions on how to 

treat their firewood for interstate commerce. 

WERC partnered with the University of 

Minnesota to evaluate different heat treatment 

options that may be suitable for the needs of 

various firewood operations and to develop heattreating schedules and heating-time tables that 

will help communities and firewood producers to 

plan and execute effective heat treating 

operations. Project details are included in the 

following report: 

http://spfnic.fs.fed.us/werc/finalrpts/07-DG114.pdf.
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-76

Working Capital Fund - Forest Service 

Program Description

The Working Capital Fund (WCF) provides orderly and efficient supply and equipment service in support 

of Forest Service programs. The Department of Agriculture Organic Act of August 3, 1956, as amended 

by the Act of October 23, 1962 (15 U.S.C. 579b), established the WCF. WCF is a self-sustaining 

revolving fund that provides services to national forests, research stations, other Federal agencies, and, as 

provided by law, to State and private cooperators.

The WCF requires no cash appropriation. Initially, regular Forest Service appropriations purchased assets 

and donated the assets to WCF. WCF rates are determined so that WCF recovers operating and 

replacement costs. WCF provides the following services:

• Equipment Leasing Services, which owns and rents vehicles and aircraft;

• Nursery Service, which consists of tree and grass seeds and other nursery seedlings;

• Enterprise Services, which are reinvention teams accomplishing projects that improve customer 

service and reduce costs. 

The table below displays the volume of business for major WCF activities:

Volume of Business for Major WCF Activities

(dollars in thousands)

FY 2009 

Actual

FY 2010 

Planned

FY 2011 

Estimated

Equipment - Fleet $155,121 $160,000 $165,000

Equipment - Aircraft $7,089 $8,000 $9,000

Nursery $10,097 $10,500 $11,000

Enterprise Services $43,100 $45,200 $47,500

Total $215,407 $223,700 $232,500
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-77

Working Capital Fund – Forest Service Fleet Management

Program Description

The Forest Service uses the Working Capital Fund (WCF) to procure motor vehicles and other fleet 

equipment in support of Forest Service programs. The WCF does not receive direct appropriations, but 

receives its authority through payment for services from appropriated accounts. Forest Service 

appropriations purchase assets and then donate the assets to WCF. WCF rates are determined so that 

WCF recovers operating and replacement costs. WCF supports Equipment Leasing Services, an entity 

that owns and rents vehicles and other fleet equipment.

Program Priorities

In FY 2007, a fleet feasibility study recommended increasing the percentage of agency-owned fleet. As a 

result, the Forest Service currently owns approximately 90 percent of the fleet equipment, and rents about 

10 percent from the General Services Administration and commercial vendors. The goal of the agency is 

to retain and operate a total number of vehicles which is the most cost effective and fuel efficient mix that 

will meet the needs of the agency. The result is that WCF expenditures will remain fairly constant over 

time, as the majority of fleet reductions will occur through the reduction of leased vehicles (which are not 

part of WCF).

Vehicle Allocation Methodology and Procurement Practices

As part of the annual vehicle replacement process, the Forest Service units conduct assessments of fleet 

operations that analyze vehicle effectiveness, cost-to-serve, life cycle cost, vehicle pooling, and operating 

costs. The objective when ordering new vehicles is to purchase the most efficient and most cost effective 

vehicle to meet the needs of the Forest Service unit. Alternative fuel vehicles (AFV) are chosen when 

available, often times the limiting factor is the availability of alternative fuel in the geographic area. Ongoing fleet needs are determined by the Forest Service managers based on transportation and equipment 

needs to achieve their goals within the allotted budget.

Utilizing national guidelines, the regional and station fleet specialists identify vehicles eligible for 

replacement. The final decision to procure a replacement vehicle is made at the regional and station level. 

When a fleet addition or upgrade is required, a formal review and approval procedure is followed and 

documented. 

Program Oversight

To assure that the fleet program provides safe, efficient, and environmentally sound fleet equipment, and 

to ensure the safe, economical, and legal acquisition, operation, maintenance, and disposal of that 

equipment, the Forest Service uses a combination of the following:

1. Financial incentives: Forest Service organizations, programs, and projects pay monthly rates on 

all WCF equipment assigned to them. This payment structure encourages dropping non-essential 

vehicles. Dropped vehicles are reassigned to units in need, and receipts go to the WCF account. 
FY 2011 Budget Justification USDA Forest Service

Special Exhibits 16-78

2. Business practices: Standard business practices require national and regional review. These 

include the physical property inventory, the annual assessments of fleet needs for scheduling 

replacements and holdovers, and the annual review and recalculation of monthly rates. The 

Forest Service recently implemented a formalized review and approval procedure for all fleet 

additions and up-grades.

3. Monitoring: Typically, a region reviews fleet management activities on two to four national 

forests each year, and the national office reviews one to two regions. 

Management regularly adjusts the fleet size, mix, and assignment throughout the year. This helps ensure 

an optimal fleet and helps to keep the fleet safe, effective, cost efficient, and in line with legal 

requirements. 
FY 2011 Budget Justification USDA Forest Service

Authorities 17-1

Forest Service Budget Authorities

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

P.L. 111-11, Omnibus Public Land Authorizes the Collaborative Forest Landscape Restoration Fund, establishing a 

Title III Management Act of 2009 Treasury fund to be used to pay up to 50 percent of the cost of carrying out and 

monitoring ecological restoration treatments on National Forest System land. 

$40,000,000 for each of fiscal years 2009 through 2019, to remain available until 

expended.

9/30/2019

All

P.L. 110-246 16 USC 2009 Soil and Water Resources This Act authorizes cooperation in soil and water resource appraisal and conservation.

Conservation Act of 1977 The provisions of this Act terminate on December 31, 2018 (16 U.S.C. 2009).

12/31/2018

NFS

P.L. 108-447 16 USC 6806 and Federal Lands Recreation This Act established a new account for Recreation Fee Demonstration program as a pilot 

6807 Enhancement Act project allowing Federal agencies to increase admission and user fees at Federal 

recreation areas and to retain the increased fees for use at the project level. The 

authority to collect fees under this section ends on September 30, 2004. The Act 

established new accounts, Timber Sale Pipeline Restoration Funds, for the 

12/31/2014 Departments of the Interior and Agriculture for deposit of a portion of receipts from 

certain timber sales to be used for preparation of additional timber sales which are not 

funded by annual appropriations, and for the backlog of recreation projects. The 

termination date is to be determined by the Secretaries under provisions of the Act.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-2

Public Law USC reference Title of the Act or Affected Summary of Authority Programs

Citation Programs Affected

Expires

All

P.L. 109-54, Private Schooling, Puerto Funds available to the Forest Service may be used for the purpose of expenses 

P.L. 111-88 Rico associated with primary and secondary schooling for dependents of agency personnel 

stationed in Puerto Rico at a cost not in excess of those authorized for the Department

of Defense for the same area, at the discretion of the Chief of the Forest Service

9/30/2014

P.L. 106-113 16 U.S.C. 528 Forest Botanical Products The pilot program law (PL 108-108, Section 335 (16 U.S.C. 528 Note)) provides a 

mechanism to fund the environmental analyses and administrative tasks necessary to 

implement it. Generally, the law requires the agency to charge and collect a fee 

covering at least a portion of the fair market value for the harvest of forest botanical 

products and a portion of the costs the agency incurs in administering the program. 

9/30/2014 The fees collected may also be used to pay for the costs of conducting inventories of 

forest botanical products, determining sustainable levels of harvest, monitoring and 

assessing the impacts of harvest levels and methods, conducting restoration activities,

including any necessary vegetation.

P.L. 106-291, Colorado Good Neighbor The Colorado Good Neighbor Act authority (CGNA) allows for the Secretary of 

P.L. 108-447 Act Agriculture, via cooperative agreement or contract, to permit the Colorado State 

Forest Service to perform watershed restoration and protection services on National 

Forest System lands in the State of Colorado when similar and complementary 

watershed restoration and protection services are being performed by the State Forest 

9/30/2013 Service on adjacent State or private lands. The types of services include treatment of 

insect infected trees, reduction of hazardous fuels, and other activities to restore or 

improve watersheds or fish and wildlife habitat across ownership boundaries.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-3

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

16 USC 2104 Stewardship Projects Section 2104 as revised February 28, 2003, to reflect Section 323 of House Joint 

Resolution 2 (Pub. L. 108-7) as enrolled, the Consolidated Appropriations 

Resolution, grants the Forest Service authority until September 30, 2013, to enter 

into stewardship projects with private persons or public or private entities, by contract

or by agreement, to perform services to achieve land management goals for the 

9/30/2013 national forests or public lands that meet local and rural community needs.

International 

P.L. 110-246 Food, Conservation, and (Title VIII) Forestry

Energy Act of 2008 a. Authorize support (including cooperation, and financial and technical assistance 

without reimbursement) for international forestry and related natural resource activities

outside the United States and its territories and possessions with a focus on those 

countries that could have a substantial impact on emissions of greenhouse gases 

12/31/2012 related to global warming.

b. Authorize support of the Tropical Forestry Action Plan and activities specifically 

addressing tropical deforestation and degradation.

c. Authorize the Institutes of Tropical Forestry in Puerto Rico and in the Pacific 

Islands.

d. Authorizes appropriations for Office of International Forestry through 2012
FY 2011 Budget Justification USDA Forest Service

Authorities 17-4

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

P.L. 110-161, Herger-Feinstein Quincy The agreement by a coalition of representatives of fisheries, timber, environmental, 

Sec 434 Library Group Forestry county government, citizen groups, and local communities that formed in northern 

Recovery Act California to develop a resource management program that promotes ecologic and 

economic health for certain Federal lands and communities in the Sierra Nevada area. 

Such proposal includes the map entitled "QUINCY LIBRARY GROUP Community 

9/30/2012 Stability Proposal. Pilot project and purpose.--The Secretary of Agriculture acting 

through the Forest Service and after completion of an environmental impact, shall 

conduct a pilot project on the Federal lands described in paragraph to implement and 

demonstrate the effectiveness of the resource management activities described in 

subsection and the other requirements of this section, as recommended in the Quincy 

Library Group-Community Stability Proposal. The Secretary shall conduct the pilot 

project on the Federal lands within Plumas National Forest, Lassen National Forest, 

and the Sierraville Ranger District of Tahoe National Forest in the State of California 

designated as "Available for Group Selection" on the map entitled "QUINCY 

LIBRARY GROUP Community Stability Proposal", dated October 12, 1993 (in this

section referred to as the "pilot project area"). Such map shall be on file and available 

for inspection in the appropriate offices of the Forest Service.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-5

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

S&PF

P.L. 110-246 Food, Conservation, and Title VIII (Forestry) Subtitle A, Amendments to the Cooperative Forestry Assistance 

Energy Act of 2008 Act of 1978

a.) Long-term State-Wide Assessments and Strategies for Forest Resources (Section 

8002) – requires states to conduct assessments for their state forest resources in order 

to receive funds through the Cooperative Forestry Assistance Act of 1978 (CFAA). 

9/30/2012 Authorizes appropriations up to $10,000,000 for each fiscal year 2008 through 2012. 

In addition, authorizes the Secretary to use other funds available for planning under 

the CFAA, for a combined total not to exceed 10,000,000 in any fiscal year.

b) Community Forest and Open Space Conservation Program (Section 8002) –

establishes a program to provide federal matching grants to help local government, 

tribes, or NGOs acquire private forests that are threatened by conversion to non-forest 

uses. Properties acquired are working forests open to public access. Authorizes 

appropriations of such sums as necessary.

c) Competition in Programs under CFAA (Section 8007) – Allows for a portion of 

CFAA funds, determined by the Secretary, to be competitively allocated to State 

Forestry agencies. No new authorization of appropriations.

d) Cooperative Forestry Innovation Partnership Projects (Section 8008) – Allows the

Secretary to competitively allocate up to 5% of CFAA funds for innovative 

education, outreach, or technology transfer projects. Funds would be available to 

States, Tribes, local governments, land-grant, or private entities with a 50% cost 

share. No new authorization of appropriations.

Title XIV (Energy)

e) Community Wood Energy (Section 9013) – establishes a grant program for state 

and local communities to plan, develop, and acquire community wood energy 

systems. Authorizes appropriations of up to $5 million/FY.

Title X (Horticulture and Organic Agriculture)

f) Pest and Disease Revolving Loan Fund (Section 10205) – establishes a revolving 

loan fund to provide low interest loans to local governments to finance purchases of 

authorized equipment to monitor, remove, dispose of, and replace infested trees. 

Authorizes appropriations of such sums as are necessary.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-6

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

P.L. 108-447, Transfer of funds to BLM Authorization to transfer up to $10,000,000 from the National Forest Systems 

P.L. 111-88 for Wild Horse and Burro appropriation to BLM for removal, preparation, and adoption of excess wild horses 

and Cadastral surveys and burros from NFS lands, and for cadastral surveys to designate the boundaries of 

such lands.

9/30/2012

NFS

P.L. 110-161 Shasta Trinity Marina A permit fee collected during fiscal year 2007 by the Secretary of Agriculture under the

Permit Fee Collection Act of March 4, 1915 (16 U.S.C. 497) for a marina on the Shasta-Trinity National 

Forest shall be deposited in a special account in the Treasury established for the 

Secretary of Agriculture, and shall remain available to the Secretary of Agriculture 

until expended, without further appropriation, for purposes stated in section 

9/30/2011 808(a)(3)(A-D) of title VIII of division J of Public Law 108-447 (16 U.S.C. 6807), 

and for direct operating or capital costs associated with the issuance of a marina permit.

P.L. 106-393, 16 USC 500 Secure Rural Schools and For each of fiscal years 2008 through 2011, the Secretary of Agriculture shall calculate

P.L. 110-343 Community Self- for each eligible State an amount...Election to receive payment must be made by 

Determination Act of 2000 each affected county by August 1, 2009, and August 1 of each second fiscal year 

thereafter...For 2008 90 percent of, for 2009 81 percent of, for 2010 73 percent of. (See

full text for calculation methodology)

9/30/2011
FY 2011 Budget Justification USDA Forest Service

Authorities 17-7

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

P.L. 109-54 Land and Facilities CONVEYANCES AUTHORIZED.—In the manner provided by this title, the 

Sec. 503, P.L. Conveyance (Realignment) Secretary may convey an administrative site, or an interest in an administrative site, 

111-8, Sec. 422 that is under the jurisdiction

of the Secretary. The conveyance of an administrative site under this title may be 

made—

9/30/2011 (1) by sale; (2) by lease; (3) by exchange; (4) by a combination of sale and exchange; 

or (5) by such other means as the Secretary considers appropriate

All

P.L. 106-291, Service First The Secretaries of the Interior and Agriculture, subject to annual review of Congress, 

P.L. 109-54, may establish pilot programs involving the land management agencies referred to in 

P.L. 111-8 this section to conduct projects, planning, permitting, leasing, contracting and other 

Sec. 418 activities, either jointly or on behalf of one another; may co-locate in Federal offices 

and facilities leased by an agency of either Department; and promulgate special rules 

9/30/2011 as needed to test the feasibility of issuing unified permits, applications, and leases. 

The Secretaries of the Interior and Agriculture may make reciprocal delegations of 

their respective authorities, duties and responsibilities in support of the "Service 

First" initiative agency-wide to promote customer service and efficiency. Nothing 

herein shall alter, expand or limit the applicability of any public law or regulation to 

lands administered by the Bureau of Land Management, National Park Service, Fish 

and Wildlife Service, or the Forest Service. To facilitate the sharing of resources under

the Service First initiative, the Secretaries of the Interior and Agriculture may make 

transfers of funds and reimbursement of funds on an annual basis, including transfers 

and reimbursements for multi-year projects, except that this authority may not be used

to circumvent requirements and limitations imposed on the use of funds.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-8

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

P.L. 108-108, Grazing Permits The terms and conditions contained in the expired, transferred, or waived (or 

Sec. 325, P.L. renewed prior to 2004) permit or lease shall continue in effect under the renewed permit

111-88 or lease until such time as the Secretary completes processing of such permit or lease 

in compliance with all applicable laws and regulations or until the expiration of the 

renewed permit, whichever comes first. At which time such permit or lease may be 

9/30/2010 canceled, suspended or modified, in whole or in part, to meet the requirements of such

applicable laws and regulations.

P.L. 106-291, Utah Good Neighbor Act A cooperative agreement or contract may authorize the State Forester of the State of 

P.L. 108-447 Utah to serve as agent for the Forest Service in providing services necessary to 

facilitate the performance and treatment of insect infested trees, reduction of hazardous 

fuels, and to restore or improve forest, rangeland, and watershed health including fish 

and wildlife habitat under subsection. The services to be performed by the State 

9/30/2010 Forester of Utah may be conducted with subcontracts utilizing State of Utah contract 

procedures. Subsections (d) and (g) of section 14 of the National Forest Management 

Act of 1976 (16 U.S.C. 472) shall not apply to services performed under a cooperative

agreement or contract under subsection.

P.L. 106-248 43 USC 2301 Federal Land Transaction This Act authorizes the Bureau of Land Management (BLM) to sell parcels of public 

Facilitation Act land regarded as “in –holdings” to reduce land management costs and fragmentation. 

This authority expires in the year 2010 at which time any unobligated funds will be 

added to the existing Land and Water Conservation Fund.

7/25/2010
FY 2011 Budget Justification USDA Forest Service

Authorities 17-9

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

16 USC 469 Preservation of Historical This Act authorizes use of appropriated funds for the preservation and protection of 

and Archaeological Data historical and archaeological resources.

Act of 1974

NFS

16 USC 470 Historic Preservation Act This Act authorizes use of appropriated funds for the preservation and protection of 

of 1966 historical and archaeological resources.

NFS

16 USC 472a National Forest For the purpose of achieving the policies set forth in the Multiple-Use SustainedManagement Act of 1976 Yield Act of 1960 (16 U.S.C. 528-531) and the Forest and Rangeland Renewable 

Resources Planning Act of 1974 (16 U.S.C. 1600 et seq.), the Secretary of 

Agriculture, under such rules and regulations as he may prescribe, may sell, at not 

less than appraised value, trees, portions of trees, or forest products located on 

National Forest System lands.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-10

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

16 USC 1600-1606 Forest and Rangeland This Act states that the Secretary of Agriculture must shall provide an assessment that 

Renewable Resources includes:

Planning Act of August 1) an analysis of present and anticipated uses, demand for, and supply of the renewable

resources, with consideration of the international resource situation, and an emphasis 

17, 1974, as amended of pertinent supply and demand and price relationship trends;

 (2) an inventory, based on information developed by the Forest Service and 

other Federal agencies, of present and potential renewable resources, and an evaluation

of opportunities for improving their yield of tangible and intangible goods and 

services, together with estimates of investment costs and direct and indirect returns to 

the Federal Government;

 (3) a description of Forest Service programs and responsibilities in research, 

cooperative programs and management of the National Forest System, their 

interrelationships, and the relationship of these programs and responsibilities to 

public and private activities;

 (4) a discussion of important policy considerations, laws, regulations, and other

factors expected to influence and affect significantly the use, ownership, and 

management of forest, range, and other associated lands; and 

 (5) an analysis of the potential effects of global climate change on the condition 

of renewable resources on the forests and rangelands of the United States; and

 (6) an analysis of the rural and urban forestry opportunities to mitigate the 

buildup of atmospheric carbon dioxide and reduce the risk of global climate change.

NFS, S&PF

16 USC 551a Sisk Act of 1971, as This Act authorizes cooperation with States and political subdivisions in enforcement

amended of State and local laws on National Forest System lands, and reimbursement of 

States and political subdivisions for expenditures incurred in such activities.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-11

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

16 USC 497 and Use and Occupancy The Acts authorize the issuance of permits for use and occupancy of suitable lands 

497b Permits Act of 1915, as within the National Forest System for construction and maintenance of buildings, 

amended, and National within the National Forest System for construction and maintenance of buildings, 

Forest Ski Area Permit structures, and other facilities for hotels, resorts, summer homes, stores, industrial or 

commercial purposes, education or other public use, alpine and nordic skiing 

operations, and so forth.

All

16 USC 555 Land Acquisition Act of Where no suitable Government land is available for national forest headquarters, 

March 3, 1925 ranger stations, dwellings, or for other sites required for the effective conduct of the 

authorized activities of the Forest Service, the Secretary of Agriculture is authorized to

purchase such lands out of the appropriation applicable to the purpose for which the 

land is to be used, and accept donations of land for any national forest or experimental

purpose. This authority is limited to $50,000 per fiscal year.

NFS

7 USC 2250a Department of Agriculture This Act provides that appropriations and funds available to the Department of 

Grants and Powers Act of Agriculture shall be available for expenses in connection with acquiring the right to 

1965, as amended use land for such purposes under long-term lease or other agreement.

NFS

7 USC 428a Department of Agriculture Section 11 for the Act provides authority for acquisition of land to carry out 

Organic Act of 1956 authorized work if provided for in appropriation acts. See also FSM 5420.11d and 

FSM 2470.1, paragraph 4.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-12

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

16 USC 581j-k Anderson-Mansfield This Act authorizes appropriations as needed to provide for reasonable continuity of 

Reforestation and reforestation and vegetation programs.

Revegetation Act of 1949

NFS

30 USC 601-602 Common Varieties of This Act provides authority to: (a) dispose of mineral material and (b) approve and 

Mineral Materials Act of issue permits to explore and develop oil and gas leases.

1947, as amended
FY 2011 Budget Justification USDA Forest Service

Authorities 17-13

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

7 USC 110-111 Bankhead-Jones Farm Sections 31 and 32 Act authorizes and directs the Secretary of Agriculture to develop 

Tenant Act of 1937 a program of land conservation and land utilization, in order thereby to correct 

maladjustments in land use, and thus assist in controlling soil erosion, reforestation, 

preserving natural resources, and to cooperate with Federal, State, territorial, and other

public agencies in development and implementation of plans. This Act also 

provides authority to dispose of, or exchange, land acquired for the land utilization 

and conservation program, including the exchange of National Forest System lands 

that have Bankhead-Jones Title III status and all Federal lands in National 

Grasslands. Section 32 also gives the Secretary of Agriculture the authority to make 

such rules and regulations deemed necessary to regulate the use and occupancy of the 

property acquired by, or transferred to, the Secretary under or for the purposes of the 

Bankhead-Jones Act; which includes for example, protection and preservation of the 

soil and natural resources, and protection of the watersheds of navigable streams. 

This Act authorizes the transfer of lands acquired under the Act to other Federal, 

State, or Territorial agencies subject to a public reverter provision.

NFS

30 USC 185 Pipelines Act of 1920 Rights-of-way through any Federal lands may be granted by the Secretary of the 

Interior or appropriate agency head for pipeline purposes for the transportation of oil, 

natural gas, synthetic liquid or gaseous fuels, or any refined product
FY 2011 Budget Justification USDA Forest Service

Authorities 17-14

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

23 USC 205 Highways Act of 1958 This Act authorize the acquisition, construction, and maintenance of National Forest 

System roads and trails; cooperation with States, counties, and other subdivisions; 

construction of roads by timber purchasers; and election by timber purchasers to have 

the Forest Service construct the roads.

NFS, S&PF

43 USC 1241-1243 Carlson-Foley Act of 1968 This Act authorizes use of noxious plant control funds reimburse States for such 

activity on Federal land.

NFS

16 USC 472a National Forest This Act authorize the acquisition, construction, and maintenance of National Forest 

Management Act of 1976 System roads and trails; cooperation with States, counties, and other subdivisions; 

construction of roads by timber purchasers; and election by timber purchasers to have 

the Forest Service construct the roads.

NFS

P.L. 108-494 Commercial Spectrum Title II of this Act created the Spectrum Relocation Fund (SRF) to provide a 

Enhancement Act, centralized and streamlined funding mechanism through which Federal agencies can 

December 2004 recover the costs associated with relocating their radio communications systems from 

certain spectrum bands, which were authorized to be auctioned for commercial 

purposes.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-15

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

P.L. 108-148 Healthy Forests This Act improves the capacity of the Secretary of Agriculture to conduct hazardous 

Restoration Act of 2003 fuels reduction projects on National Forest System lands aimed at protecting 

communities, watersheds, and certain other at-risk lands from catastrophic wildfire; 

and also to enhance efforts to protect watersheds and address threats to forest and 

rangeland health, including catastrophic wildfire

NFS

P.L. 095-495 Boundary Waters Canoe Section 18(e) authorizes the construction of dispersed recreation sites and trails 

Area Wilderness Act of outside the Boundary Waters Canoe Area Wilderness.

1978

NFS

16 USC 1643a Forest and Rangeland Section 3 authorizes the construction and acquisition of research laboratories and 

Renewable Resources facilities and the acquisition of necessary land.

Research Act of 1978, as 

amended

NFS

16 USC 1241-1251 National Trails System Sections 7 and 10 authorize the acquisition, exchange, and donation of land for the 

Act of 1968, as amended National Trails System and for development, management, and volunteer assistance 

on the system.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-16

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

7 USC 2250 Department of Agriculture Section 703 authorizes the erection, alteration, and repair of buildings and other 

Organic Act of 1944 improvements on Federal land that are necessary to conduct authorized work, 

provided provision is made in applicable appropriations.

NFS

16 USC 1608 Forest and Rangeland This Act authorize the acquisition, construction, and maintenance of National Forest 

Renewable Resources System roads and trails; cooperation with States, counties, and other subdivisions; 

Planning Act of 1974, construction of roads by timber purchasers; and election by timber purchasers to have 

the Forest Service construct the roads.

Section 10

NFS

P.L. 095-96 Archaeological Resources This Act authorizes use of appropriated funds for the preservation and protection of 

Protection Act of 1979 historical and archaeological resources.

NFS

16 USC 532-538 National Forest Roads and This Act authorize the acquisition, construction, and maintenance of National Forest 

Trails Act of 1964 System roads and trails; cooperation with States, counties, and other subdivisions; 

construction of roads by timber purchasers; and election by timber purchasers to have 

the Forest Service construct the roads.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-17

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

P.L. 108-148 Healthy Forests This Act improves the capacity of the Secretary of Agriculture to conduct hazardous 

Restoration Act of 2003 fuels reduction projects on National Forest System lands aimed at protecting 

communities, watersheds, and certain other at-risk lands from catastrophic wildfire, to 

enhance efforts to protect watersheds and address threats to forest and rangeland health,

including catastrophic wildfire

NFS

16 USC 698v Valles Caldera This Act authorizes the Secretary of Agriculture to acquire the Baca Ranch in New 

Preservation Act of July Mexico and establish such lands as a unit of the National Forest System to be 

25, 2000 managed in accordance with the purposes and requirements of this title.

NFS

43 USC 1716 Federal Land Exchange Section 4 of this Act authorizes appropriations to consider, process, and consummate 

Facilitation Act of 1988 land exchanges pursuant to the Federal Land Policy and Management Act of 1976 (43

USC 1701)

NFS, LE&I

P.L. 099-570 16 USC 559b National Forest System This Act authorizes the Secretary of Agriculture to prevent and control drug abuse in 

Drug Control Act of 1986 the National Forest System, including using investigative powers beyond the exterior

boundaries of National Forest System lands to do so.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-18

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

16 USC 521 Small tracts Act of This Act authorizes the sale, exchange, or interchange of National Forest System 

January 12, 1983 lands of forty acres or less and of $150,000 or less in value.

NFS

7 USC 2250a Department of Agriculture Section 1 authorizes the erection of buildings and other structures on nonfederal land, 

Grants and Powers Act of with long-term lease and right-to-remove, and authorizes the use of appropriations for 

1965 expenses necessary to acquire long-term lease.

All

7 USC 2250a Agriculture Grants and Provides authority to erect buildings and other structures on nonfederal land, if a longPowers Act of 1965, as term lease on the land is obtained. For this section, long-term lease is defined as the 

amended estimated life of or need for the structure. This Act also includes authority to enter 

into a long-term lease on nonfederal land.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-19

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

International 

7 USC 1421 Food, Agriculture, a. Authorizes continuation of the Modern Timber Bridge Initiative on a cost share forestry

Conservation, and Trade basis for modern bridge technology transfer projects, conferences, and the construction 

Act of 1990 of bridges.

b. Authorizes a grant to a State for the establishment of a Southern Forest 

Regeneration Center for the study of forest regeneration problems and forest 

productivity in the south.

c. Authorizes establishment of the Semiarid Agroforestry Research, Development, 

and Demonstration Center at The National Agroforestry Center (also called Forestry 

Sciences Laboratory) in Lincoln, Nebraska, to: 

(1) Conduct research, investigations, studies, and surveys of agroforestry systems and

practices.

(2) Collect and disseminate information and promote the use of agroforestry 

conservation technologies and practices.

d. Authorizes establishment of a research and demonstration program for the forests 

and rangelands of Oregon and Washington east of the Cascades Crest in consultation 

and cooperation with Federal, State, and local agencies, universities, and the private 

sector. Establishes an advisory committee to assist in the formulation of 

implementation plans for the program.

e. Authorizes establishment of an International Forest Products Trade Institute to 

increase the competitive position of forest industries of the northeastern United States 

as major producers of international forest products.

f. Provides authority to: 

(1) Conduct studies on the emissions of methane, nitrous oxide, and hydrocarbons 

from tropical and temperate forests and the manner in which they may affect global 

climate change.

(2) Establish an Office of International Forestry within the Forest Service.

(3) Establish an International Institute of Tropical Forestry and an Institute of Pacific 

Islands Forestry to conduct research including management and development of 

tropical forests. 

(4) Establish biomass energy demonstration projects.

(5) Negotiate an interagency cooperative agreement with the Department of Defense to

maximize biomass growth.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-20

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

International 

16 USC 4501 International Forestry a. Authorizes support (including cooperation, financial, and technical assistance, forestry

Cooperation Act of 1990, without reimbursement) for international forestry and related natural resource activities

as amended outside the United States, and its territories, and possessions, with a focus on those 

countries that could have a substantial impact on emissions of greenhouse gases 

related to global warming.

b. Authorizes support of the Tropical Forestry Action Plan and activities specifically 

addressing tropical deforestation and degradation.

c. Authorizes expansion of the capabilities of the International Institute of Tropical 

Forestry in Puerto Rico.

All

P. L. 95-307 16 USC 1649 Forest and Rangeland Authorizes establishment of a forestry student grant program for minority and female 

Renewable Resources students

Research Act of June 30, 

1978, as amended
FY 2011 Budget Justification USDA Forest Service

Authorities 17-21

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

16 USC 1600 - Forest and Rangeland (1) To conduct, support, and cooperate in investigations, tests, and other activities 

1648 Renewable Resources necessary to obtain, analyze, develop, demonstrate, and disseminate scientific 

Research Act of June 30, information about protecting, managing, and utilizing forest and rangeland renewable 

 1978, as amended resources in rural, suburban, and urban areas.

(2) For competitive grants and advance of funds to cooperators and grantees.

(3) For research encouraging improved reforestation of cutover lands.

b. Authorizes development and implementation of improved methods of survey and 

analysis of forest inventory information.

c. Authorizes research studies and other activities deemed necessary to: 

(1) Evaluate renewable resource management problems associated with urban-forest 

interface. 

(2) Assess effects of changes in federal revenue codes on private forest management 

and investment.

(3) Develop improved delivery systems for information and technical assistance 

provided to private landowners.

d. Authorizes an expanded wood fiber recycling research program.

All

7 USC 3318-3319d Food and Agriculture Act designates the U.S. Department of Agriculture as the lead agency of the Federal 

of 1977 government for agricultural research, extension, and teaching. It also removes 

restrictions on the use of cooperative agreements with universities and permits cost

reimbursable agreements with State cooperating institutions without competition.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-22

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

S&PF, 

P.L. 101-624 Global Climate Change (Title XXIV) International 

Prevention Act of 1990 a. Authorize support (including cooperation, and financial and technical assistance Forestry

without reimbursement) for international forestry and related natural resource activities

outside the United States and its territories and possessions with a focus on those 

countries that could have a substantial impact on emissions of greenhouse gases 

related to global warming.

b. Authorize support of the Tropical Forestry Action Plan and activities specifically 

addressing tropical deforestation and degradation.

c. Authorize the Institutes of Tropical Forestry in Puerto Rico and in the Pacific 

Islands.

d. Authorizes appropriations for Office of International Forestry through 2012

All

7 USC 450i Agriculture Grants and Provides authority to make competitive grants to institutions that meet the select 

Powers Act of 1965, as criteria in 7 U.S.C. 450i, including special grants and grants for facility renovation 

amended and refurbishment, to further the programs of the Department of Agriculture.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-23

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

Research

7 USC 2276 The 2000 Interior and Forest Inventory and Analysis (FIA) Program was added to the existing Food 

Related Agencies Security Act of 1985 , thus providing a legal basis for protecting the privacy of the 

Appropriations Act (H.R. data suppliers. These protections take the following form:

 3423) a. Authorized Disclosure. In the case of information furnished under a provision of 

law referred to in subsection (d), neither the Secretary of Agriculture, any other officer 

or employee of the Department of Agriculture or agency thereof, nor any other person 

may do the following:

(1) Use such information for a purpose other than the development or reporting of 

aggregate data in a manner such that the identity of the person who supplied such 

information is not discernible and is not material to the intended use of such 

information; or

(2) Disclose such information to the public, unless such information has been 

transformed into statistical or aggregate form that does not allow the identification of 

the person who supplied the information.

b. Duty of Secretary; immunity from disclosure; necessary consent:

(1) In carrying out a provision of law referred to in subsection (d), no department, 

agency, officer, or employee of the Federal government, other than the Secretary of 

Agriculture, shall require a person to furnish a copy of statistical information provided

to the Department of Agriculture.

(2) A copy of such information:

(a) Must be immune from mandatory disclosure of any type, including legal process; 

and 

(b) Must not, without the consent of such person, be admitted as evidence or used for

any purpose in any action, suit, or other judicial or administrative proceeding.

c Violations; penalties. Any person who shall publish, cause to be published, or 

otherwise publicly release information collected pursuant to a provision of law referred

to in subsection (d), in any manner or for any purpose prohibited in section (a), may 

be fined not more than $10,000 or imprisoned for not more than 1 year, or both.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-24

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

Research facilities

7 U.S.C. 390 - Research Facilities 

390c Act of This Act authorizes support for agricultural research (including forestry) at eligible 

1963, as amended institutions through Federal grant funds, on a matching funds basis, to help finance 

physical facilities and equipment as required for the effective conduct of agricultural 

research and related academic programs.

Research and S & PF

16 U.S.C. 582a McIntire-Stennis Act of Please see USC link for sections 581a-1 through 581a-8. Authorizes the Secretary of 

582a-1-582a- 1962, as amended Agriculture to cooperate and assist State colleges and universities in forestry research 

7 on a matching funds basis.

b. Authorizes the Secretary of Agriculture to make competitive grants to a State 

agricultural experiment station, college, or university, research institution or 

organization, Federal agency, private organization, or corporation with the 

demonstrable capacity to conduct forestry, natural resource, and environmental 

research; and to update research facilities and equipment available for this type of 

research.

All

7 USC 2250 Department of Agriculture Provides authority to erect, alter, and repair buildings necessary to carry out 

Organic Act of 1944 authorized work.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-25

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 In-Kind Match for Senior The Forest Service is currently partnering with 8 Senior Community Service 

Program Employment Program (SCSEP) National Grantees to host approximately 1,000 

positions on National Forests. The FS began hosting the participants in 2006 after it

discontinued operating the SCSEP as a National Grantee. As required by the Older 

Americans Act (section 502(c)), the National Grantees are to provide 10 percent each 

year to the cost of operating the SCSEP projects. This can be in the form of cash or 

an in-kind contribution, and it must be from a non-federal source. The language in 

the FS appropriations bill allows the agency’s appropriations be counted as a nonfederal in-kind match to the operation of the program. The National Grantees count 

the supervision provided to the SCSEP participants as their in-kind contribution, 

therefore, this allows them to count the cost of salaries of FS staff who supervise their 

participants.

All

P.L. 105-277 16 USC 1011 note Watershed Restoration and appropriations for the Forest Service may be used by the Secretary of Agriculture for 

Sec. 323, P.L. Enhancement Agreements the purpose of entering into cooperative agreements with willing Federal, tribal, State 

111-11 Sec. and local governments, private and nonprofit entities and landowners for the 

3001 protection, restoration and enhancement of fish and wildlife habitat, and other 

resources on public or private land, the reduction of risk from natural disaster where 

public safety is threatened, or a combination thereof or both that benefit these 

resources within the watershed.

16 U.S.C. 1600 Forest and Rangeland long-range planning by the US Forest Service to ensure the future supply of forest 

Renewable Resources resources while maintaining a quality environment. RPA requires that a renewable 

Planning Act of 1974 resource assessment and a Forest Service plan be prepared every ten and five years, 

respectively, to plan and prepare for the future of natural resources.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-26

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

International 

7 U.S.C 3291 Food and Agriculture Act Authorizes the Secretary of Agriculture to engage in international agricultural research Programs

of 1977 and extension, including to " ... assist the Agency for International Development with

agricultural research and extension programs in developing countries".
FY 2011 Budget Justification USDA Forest Service

Authorities 17-27

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

S&PF

P.L. 101-624 (16 USC 2106; 7 Food, Agriculture, (Title XII, Subtitle B, Chapter 2, section 1241 (Research and Utilization), section 

USC 6601; 7USC Conservation, and Trade 1244 (Forest Land Protection), Subtitle C (America the Beautiful Act of 1990), 

 6611-6617) Act of 1990 Subtitle D (Miscellaneous Provisions); and Title XXIII, Subtitle G, chapter 2 

(National Forest-Dependent Rural Communities Economic Diversification Act of 

1990, amended by Pub. L. 103-115, which changes the definition of rural 

communities for eligibility for economic recovery).)

a. Section 1241 authorizes the Modern Timber Bridge Initiative, with an 

authorization of $5,000,000 annually.

b. Section 1271 authorizes assistance to landowners who suffer destruction of 35 

percent or more of a commercial tree stand due to damaging weather, related 

condition, or wildfire (16 U.S.C. 2106a). 

c. Section 2371 authorizes the establishment of and economic development and 

global marketing program (7 U.S.C 6601). Activities include: (1) transfer 

technologies to natural resource-based industries in the United States to make such 

industries more efficient, productive, and competitive; (2) assist businesses to identify

global marketing opportunities, conduct business on and international basis, and 

market themselves more effectively; and (3) train local leaders in strategic community 

economic development. The Healthy Forest Initiative amended section 2371 of the 

Food, Agriculture, Conservation, and Trade Act of 1990 (7 U.S.C. 6601) by adding a

new program called, “Rural Revitalization Technologies” which provides for the 

accelerated adoption of technologies using biomass and small-diameter materials; 

creates community-based enterprises through marketing activities and demonstration 

projects; and establishes small-scale business enterprises to make use of biomass and 

small-diameter materials.

d. Sections 2372-2379 authorize assistance to rural communities in or near national 

forests; establishment of rural forestry and economic diversification action teams; and 

loans to economically disadvantaged rural communities (7 U.S.C. 6611-6617). 

Section 2379 authorizes appropriations of an amount not to exceed 5 percent of 

receipts from sales of timber and other forest products and user fees, plus additional 

sums as necessary, as provided in appropriations acts.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-28

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

S&PF

P.L. 108-148 Healthy Forests and This Act improves the capacity of the Secretary of Agriculture to conduct hazardous 

Restoration Act of 2003 fuels reduction projects on National Forest System lands aimed at protecting 

communities, watersheds, and certain other at-risk lands from catastrophic wildfire, to 

enhance efforts to protect watersheds and address threats to forest and rangeland health,

including catastrophic wildfire.

S&PF

P.L. 108-7 Consolidated (Title II) This Resolution authorizes financial, technical, and related assistance for 

and 108-108 Appropriations States for management of invasive or noxious plants on non-Federal lands (117 Stat. 

Resolution FY 2003 and 250), and for restoration and rehabilitation of National Forest System lands damaged 

by forest pests and pathogens (insects and diseases). Also, authorizes the use of 

Subsequent Forest Service funds for interactions with and providing technical assistance to rural 

communities for sustainable rural development purposes (117 Stat. 256).

S&PF

P.L. 106-506 Lake Tahoe Restoration This Act enables the Forest Service to plan an implement environmental restoration 

Act activities and forest management activities in the Lake Tahoe Basin, along with other 

Federal, State, local, regional, tribal, and private entities to improve water quality. 

Water quality activities can occur on Federal lands as well as erosions and sediment 

control projects on non-Federal lands if the projects benefit the Federal land. General 

categories of activities include: erosion and sediment control; acquisition of 

environmentally sensitive land from willing sellers; wildfire risk reduction; cleaning 

up hydrocarbon contamination; and management of vehicular parking and traffic in the

Lake Tahoe Basin Management Unit.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-29

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

S&PF

P.L. 102-381 Department of the Interior Starting in FY 1993, the Administrative or General Provisions language allows 

and Related Agencies employees to interact with and provide technical assistance to rural communities for 

Appropriations Act of sustainable rural development outside the boundaries of National Forest System 

lands.

1993

S&PF, 

P.L. 102-574 16 USC 4505a, Hawaii Tropical Forestry This act grant authorities to the Secretary of Agriculture to treat invasive plants on International

4503 Recovery Act of 1992 Federal and non-Federal ownerships in Hawaii and in tropical forests on Federal lands Forestry

in other States.

NFS

P.L. 104-208 Omnibus Consolidated This Act authorized emergency appropriations for watershed and flood prevention and 

Appropriations Act, 1997 emergency conservation programs required for disaster recovery from hurricanes Fran 

and Hortense.

All

P.L. 093-378 16 USC 1601 Forest and Rangeland Requires preparation of a renewable resource assessment, program plans, inventories, 

Renewable Resources and budget request, and update every 10 years; such sums as appropriated; no 

Planning Act of 1974, as expiration date.

amended
FY 2011 Budget Justification USDA Forest Service

Authorities 17-30

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

16 USC 555 Act of March 3, 1925, as This Act authorizes the purchase of land for administrative sites when no suitable 

amended Government land is available. Appropriated funds must be available for the purpose 

for which the land is to be used. This authority is subject to an annual, service-wide 

limitation of $50,000.

NFS

P. L. 94-588 16 USC 472a(i) National Forest Amends Forest and Rangeland Renewable Resources Planning Act of 1974 and 

Management Act of 1976 provides authority and requirements for the sale of timber on the National Forest 

System

P.L. 100-446 Department of the Interior These appropriation acts established the Rural Development Program. The program is

and Related Agencies listed in the Catalog of federal Domestic Assistance, No. 10.672, Rural 

Appropriations Act Development, Forestry and Communities
FY 2011 Budget Justification USDA Forest Service

Authorities 17-31

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

S&PF, NFS

P.L. 099-663 16 USC 544 Columbia River Gorge Establishes the Columbia River Gorge National Scenic Area in Washington and 

National Scenic Area Act Oregon. Designates special management and urban areas within such scenic area. 

of November 17, 1986 Permits minor revisions in such areas, as specified. Directs the Secretary to administer

the Federal lands within the special management areas according to forest and 

multiple-use management regulations applicable to the national forests. Requires the 

Secretary to develop land use designations within such areas within three years, a 

resource inventory within one year, and a recreation assessment within two years. 

Authorizes the Secretary to acquire non-Federal lands within such special management

areas. Requires the Secretary to report periodically to the appropriate congressional 

committee on the status of land acquisitions. Limits the use of eminent domain in 

acquiring such lands. Authorizes the Secretary to make grants to each State for grants 

and loans for economic development in counties which have adopted conforming land 

use ordinances. Sets forth other terms and restrictions. Directs the Secretary to provide

technical assistance to counties to develop land use ordinances under this Act. Sets 

forth terms and restrictions on the provision of such assistance. Allocates timber 

receipts from special management area funds. Directs the Secretary to make payments 

to local governments to compensate for lost real property taxes from federally acquired

lands. Sets forth limitations on other Federal expenditures in such area.

All

P.L. 099-198 16 USC 3842 Food Security Act of 1985 A bill to extend and revise agricultural price support and related programs, to provide 

for agricultural export, resource conservation, farm credit, and agricultural research and

related programs, to continue food assistance to low-income persons, to ensure 

consumers an abundance of food and fiber at reasonable prices, and for other purposes.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-32

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

S&PF

P.L. 096-586 Burton-Santini Lake Tahoe Section 2(g) of this Act authorizes payments to localities for water pollution control, 

Basin Act of December soil erosion mitigation, or land acquisition by local government authorities within 

23, 1980 the Lake Tahoe Basin. Authorization is 15 percent of the Land and Water 

Conservation Fund appropriation in accordance with section 3 of the Act for Lake 

Tahoe Basin land acquisitions each year. This authority expires when all Clark 

County, Nevada, land specified in the Act is sold by the U.S. Department of the 

Interior, Bureau of Land Management.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-33

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

S&PF

16 USC 2101-2114 Cooperative Forestry a. Authorizes cooperation and assistance to non-Federal forest landowners and 

Assistance Act of 1978, as communities in rural forest management, urban and community forest management, 

amended production of timber and other forest resources, insect and disease control, rural fire 

prevention and control, forest management and planning assistance, and technology 

implementation (sec. 3 of the Act).

c. Establishes a forest stewardship program to assist nonindustrial private forest 

landowners to more actively manage their forest resources by utilizing the services of 

existing professional expertise and assistance programs; including assistance to State 

foresters for this purpose; authorizes $25,000,000 annually for fiscal years 1991 

through 1995, and such sums as necessary thereafter (16 U.S.C. 2103b) 

(sec. 5 of the Act). 

d. Establishes a forest legacy program and the acquisition of land, including 

conservation easements and rights of public access, to ascertain and protect 

environmentally important forest areas threatened by conversion to nonforest uses. 

Pub. L. 104-127 amended the Cooperative Forestry Assistance Act by authorizing 

grants to States (16 U.S.C. 2103c) (sec. 7 of the Act).

e. Authorizes a forest health protection program to protect trees and forests from 

insect infestations, diseases, and man-made stresses; directly on National Forest 

System lands and in cooperation with others on other lands in the United States. 

This work includes monitoring the health of forest lands of the United States. Also, 

authorizes cost share assistance to States, subdivisions of States, or other entities on 

non-Federal lands, to implement an integrated pest management strategy; authorizes 

$10,000,000 for integrated pest management, and such sums as may be necessary for 

other activities (16 U.S.C. 2104) (sec. 8 of the Act).

f. Authorizes an urban and community forest resources education and technical 

assistance program; a competitive challenge cost-share program for urban and 

community forestry projects; a Forestry Advisory Council (NUCFAC); and an urban 

and community tree planting and forest management program; authorizes $30,000,000

a year from 1991 to 1995, and such sums as may be necessary thereafter (16 U.S.C. 

2105) (sec. 9 of the Act). 

g. Authorizes financial, technical, and related assistance to State Foresters and 

through them to other agencies and individuals, including rural volunteer fire 

departments, to conduct preparedness and mobilization activities; authorizes 

$70,000,000 annually (16 U.S.C. 2106) (sec. 10 of the Act).

h. Authorizes cooperative management with State Foresters and equivalent State 

officials related to wildfire threats and establishes the Community and Private Land 
FY 2011 Budget Justification USDA Forest Service

Authorities 17-34

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

Fire Assistance Program; authorizes $35,000,000 for each of fiscal years 2002 through

2007, and such sums as may be necessary thereafter (16 U.S.C. 2106c) (sec. 10a of 

the Act).

i. Authorizes management assistance, planning assistance, and technology 

implementation with State Foresters or equivalent State officials (16 U.S.C. 2107) 

(sec. 11 of the Act).

j. Authorizes consolidated payments to State Foresters (16 U.S.C. 2108) (sec.12 of 

the Act).

k. Authorizes Federal and State coordinating committees to advise on State and 

private forestry issues (16 U.S.C. 2113)

All

30 USC 22 and 28 U.S. Mining Laws Act of This Act governs mining activities for valuable minerals on public domain lands.

May 10, 1872, as amended

S&PF, 

P.L. 101-513 International Forestry (Title VI) International 

Cooperation Act of 1990 a. Authorize support (including cooperation, and financial and technical assistance Forestry

without reimbursement) for international forestry and related natural resource activities

outside the United States and its territories and possessions with a focus on those 

countries that could have a substantial impact on emissions of greenhouse gases 

related to global warming.

b. Authorize support of the Tropical Forestry Action Plan and activities specifically 

addressing tropical deforestation and degradation.

c. Authorize the Institutes of Tropical Forestry in Puerto Rico and in the Pacific 

Islands.

d. Authorizes appropriations for Office of International Forestry through 2012
FY 2011 Budget Justification USDA Forest Service

Authorities 17-35

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 Comptroller General In accordance with this Comptroller General Decision , Job Corps reimbursable 

Decision B-215842, dated authority is restricted to the activities of collections from non-students for meals in the

June 25, 1986, (65 students’ dining hall and collections from students for lost and/or damaged tools and

 Comp.Gen.666) clothing.

NFS

16 USC 501 Act of March 4, 1913, as This Act, commonly known as “Ten-percent Roads and Trails”, authorizes 10 

amended percent of all moneys received from the national forests during each fiscal year shall be

available to be expended for the construction and maintenance of roads and trails 

within the national forests in the States from which such proceeds are derived. 

Annual appropriation Acts have amended this Act to allow the Secretary of 

Agriculture to expend funds without regard to the State in which the amounts were 

derived.

16 USC 579c Restoration of National Any moneys received by the United States with respect to lands under the 

Forest Lands and administration of the Forest Service (a) as a result of the forfeiture of a bond or deposit

Improvements Act by a permittee or timber purchaser for failure to complete performance of 

improvement, protection, or rehabilitation work required under the permit or timber 

sale contract or (b) as a result of a judgment, compromise, or settlement of any claim, 

involving present or potential damage to lands or improvements, shall be deposited 

into the Treasury and are hereby appropriated and made available until expended to 

cover the cost to the United States of any improvement, protection, or rehabilitation 

work on lands under the administration of the Forest Service rendered necessary by 

the action which led to the forfeiture, judgment, compromise, or settlement: 

Provided, That any portion of the moneys so received in excess of the amount 

expended in performing the work necessitated by the action which led to their receipt 

shall be transferred to miscellaneous receipts.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-36

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

5 USC 5911 Forest Service Quarters This Act authorizes the collection of rental income from employees living in 

Operations and government residences. Such rents and charges shall be deposited in a special 

Maintenance Treasury fund, to remain available for obligation until expended, for maintenance and 

operation of quarters.

16 USC 580p-3 The Woodsy Owl Act This Act authorizes the Secretary of Agriculture to deposit all use or royalty fees 

collected for the manufacture, reproduction, or use of the name or character “Woodsy 

Owl” and the associated slogan, “Give a Hoot, Don’t Pollute”. The Secretary shall 

deposit all fees revenue into a special Treasury account, to be available for obligation 

and expenditure for the purpose of furthering the “Woodsy Owl” campaign to promote

the wise use of the environment and programs which foster maintenance and 

improvement of environmental quality.

16 USC 580p-2 The Smokey Bear Act This Act authorizes the Secretary of Agriculture to deposit all fees collected under 

regulations promulgated by the Secretary relating to “Smokey Bear”, into a special 

Treasury account to be available to further the nationwide forest fire prevention 

campaign. Most fees deposited under this Act are royalty fees from Smokey Bear 

character-licensing collection agreements with merchandisers.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-37

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 16 USC 490 The Brush Disposal Act This Act authorizes the Secretary of Agriculture to require purchasers of national forest

of August 11, 1916, as timber to deposit the estimated cost to dispose of brush and other debris resulting 

amended from their cutting operations.

7 USC 1012 Title III of the Bankhead- This Act authorizes annual payments on a calendar year basis to counties, equal to 25

Jones Farm Tenant Act of percent of net revenues received during the year (excluding receipts from the sale of 

July 22, 1937, as amended land). Counties shall use these payments for schools and/or roads. This Act pertains

primarily to national grasslands and land utilization projects.

16 USC 471h The Act of July 4, 1968 This Act authorizes the Secretary of Agriculture to cooperate with, and receive the 

cooperation of, public and private agencies and organizations and individuals in the 

development, administration, and operation of the Cradle of Forestry in western North

Carolina. The Secretary of Agriculture is authorized to accept contributions and gifts

to further the purposes of the Act.

16 USC 500 The Act of May 23, 1908, This Act, commonly known as “Payments to States”, authorizes annual payments on

as amended a fiscal year basis to States equal to 25 percent of revenues from the sale of goods and

services by the national forests. States shall use these payments for schools and 

roads.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-38

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 16 USC 4601-6a The Land and Water This Act authorizes the Forest Service to collect recreation user fees, deposit those 

Conservation Fund Act of fees in a special Treasury fund to be available for obligation until expended.

1965, as amended

P.L. 109-58 Energy Policy Act of 2005 This Act authorizes Bureau of Land Management (BLM) to use a portion of receipts 

collected from mineral lease rentals to finance the Pilot Project activities at seven 

offices: Rawlins and Buffalo, WY; and Miles City, MT; Farmington and Carlsbad, 

NM; Grand Junction/Glenwood Springs, Co; and Venal, UT.

23 USC 120, 125, The Federal Highway Act, This Act establishes the Federal Highway Trust Fund, managed by the Department of

205 as amended Transportation. Federal highway construction, maintenance, and other projects 

defined in the Act are financed from the Federal Highway Trust Fund. The 

Department of Transportation transfers these monies to the Forest Service for highway

projects pertinent to National Forest System lands.

All

P.L. 109-148 Healthy Forests This Act improves the capacity of the Secretary of Agriculture to conduct hazardous 

Restoration Act of 2003 fuels reduction projects on National Forest System lands aimed at protecting 

communities, watersheds, and certain other at-risk lands from catastrophic wildfire, to 

enhance efforts to protect watersheds and address threats to forest and rangeland health,

including catastrophic wildfire.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-39

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 16 USC 460111 The Land Between the This Act transferred responsibility for the Land Between the Lakes National 

Lakes Protection Act of Recreation Area from the Tennessee Valley Authority to the Secretary of Agriculture, 

1998 to be managed as a unit of the National Forest System. The Act established the Land

Between the Lakes Advisory Board and the Land Between the Lakes Trust Fund. 

The Act’s provisions give investment authority to the Forest Service for the trust 

fund balance.

7 USC 2269 The Act of October 10, This Act authorizes agencies within the U.S. Department of Agriculture to accept 

1978 donations for non-research activities.

16 USC 1606a The Act of October 14, This Act establishes the Reforestation Trust Fund which receives monetary resources 

1980, as amended through an annual warrant from Treasury, of monies received for certain customs 

duties and tariffs. The trust fund balance is available for reforestation and other 

“treatment of acreage.” The Act’s provisions give investment authority to the Forest 

Service for the trust fund balance.

NFS

P.L. 110-161 Consolidated This Act authorized a major, new strategic effort to repair roads and trails in 

Appropriations Act, 2008 environmentally sensitive areas, roads and trails damaged by recent storms, and roads 

which may harm community water systems.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-40

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 16 USC 577g The Act of June 22, 1948, This Act, commonly known as “Payments to Minnesota Counties”, authorizes 

as amended annual payments on a fiscal year basis to the State of Minnesota from any national 

forest receipts not otherwise appropriated, an amount equivalent to three-quarters of 1 

percent of the fair appraised value of certain national forest lands specified in the Act, 

situated in three Minnesota counties (sec. 61.2). Payments under the Act of May 23, 

1908 (sec. 60.1, 

para. 1), shall not be applicable to the national forest land to which this Act applies.

16 USC 1271-1287 Federal Water Project The Act has provided up to 50 percent of the costs of recreation facility development 

Recreation Act, 1965, as at certain reservoirs when a non-Federal entity entered into an agreement to provide 

amended the remaining development funds; to pay all of the costs of operations, maintenance, 

and replacement (OM&R); and to manage the area for public recreational use. For 

reservoirs constructed before 1965, the Federal contribution for the development of 

recreation facilities was limited to $100,000 for each reservoir.

P.L. 094-580 Resource Conservation An Act to provide technical and financial assistance for the development of 

and Recovery Act management plans and facilities for the recovery of energy and other resources from 

(RCRA) discarded materials and for the safe disposal of discarded materials, and to regulate the 

management of hazardous waste. RCRA was last reauthorized by the Hazardous and 

Solid Waste Amendments of 1984. The amendments set deadlines for permit 

issuance, prohibited the land disposal of many types of hazardous waste without prior 

treatment, required the use of specific technologies at land disposal facilities, and 

established a new program regulating underground storage tanks. The authorization 

for appropriations under this Act expired September 30, 1988, but funding for the 

Environmental Protection Agency's programs in this area has continued; the Act's 

other authorities do not expire.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-41

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 26 USC 4611-4682 Comprehensive The 1980 statute authorized, through 1985, the collection of taxes on crude oil and 

Environmental Response, petroleum products, certain chemicals, and hazardous wastes. It also established 

Compensation and liability to the U.S. Government for damage to natural resources over which the U.S. 

 Liability Act of 1980 has sovereign rights [42 U.S.C. 9607(f)(1)] and requires the President to designate 

Federal officials to act as trustees for natural resources. Use of Superfund monies to 

conduct natural resource damage assessments was provided in section 11(c)(1) [42 

U.S.C. 9611 (c)(1)].

P.L. 103-66 Omnibus Budget This Act authorizes the Forest Service to retain 15 percent of certain recreation 

Reconciliation Act of 1993 receipts to defray the costs of collecting those receipts.

16 USC 539d Tongass Timber Reform This Act established the Tongass Timber Supply Fund with related appropriations to

Act of 1990 finance the consistent supply of saw timber from the Tongass National Forest to meet

the annual market demand as defined in the Act and to use wood products which 

might otherwise not be utilized.

Office of General Counsel This opinion states that timber sales under the Timber Pipeline Restoration program 

Opinion dated December must use sales receipts for payments to States before net receipts are deposited into the

13, 2002 Timber Sale Pipeline Restoration Fund.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-42

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

P.L. 104-19 Fiscal Year 1995 Section 2001(k) of this Act released certain timber sales that had been suspended 

Supplemental legally for various environmental reasons. These timber sales are referred to as first 

Appropriations for generation sales under the Timber Sale Pipeline Restoration program.

Disaster Assistance 

16 USC 4601 Land and Water This Act regulates admission and special recreation user fees at certain recreational 

Conservation Fund Act areas and establishes a fund to subsidize state and federal acquisition of lands and 

waters for recreational and conservation purposes.

16 USC 472a The National Forest Purchasers of salvage timber harvests shall deposit the timber sale price in a 

Management Act of 1976 designated Treasury fund from which money is available for obligation until 

expended.

16 USC 498 Cooperative Funds Act of The Act grants Federal Agencies to maintain wildland fire protection organizations for

June 30, 1914 the protection of federal lands and for the States to assist local fire departments in 

maintaining wildland fire protection resources for the protection of State and privately 

owned lands. Structure and dump fire protection, which are the responsibility of local

fire departments, are independent of this agreement.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-43

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 16 USC 539d The Alaska National This Act authorized that receipts from oil, gas, timber, coal, and other natural 

Interest Lands resources collected by the Departments of Agriculture and the Interior were available 

Conservation Act of 1980 to prepare, offer, and administer the timber sale program on the Tongass National 

Forest.

102 Stat. 1809 Resource Management Annual appropriations acts in the 1980's authorized retention of excess timber receipts

Timber Receipts for national forest system programs.

P.L. 106-206 Commercial Filming The Act of May 26, 2000 (Pub. L. 106-206) authorizes retention of fees collected for 

commercial filming and photography land use authorizations and the obligation of the

monies for the maintenance of the filming site.

16 USC 698v The Valles Caldera This Act authorizes establishment of the Valles Caldera Fund.

Preservation Act of 2000
FY 2011 Budget Justification USDA Forest Service

Authorities 17-44

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 16 USC 1650 Hardwood Technology This Act establishes the Institute of Hardwood Technology Transfer and Applied 

Transfer and Applied Research in Princeton, West Virginia, previously named the Robert C. Byrd 

Research Hardwood Technology Center in West Virginia. Certain revenues shall be deposited 

into a special Treasury fund to be available for obligation until expended.

16 USC 460111-1 Land Between the Lakes This Act authorizes the Forest Service to retain certain recreation revenue receipts 

Protection Act of 1998 from the Land Between the Lakes National Recreation Area, to be deposited into a 

special Treasury fund to be available for obligation until expended.

P.L. 100-638 The Act of November 8, This Act establishes the “Quinault Special Management Area” from part of the 

1968 Olympic National Forest, and assigns responsibility to the Forest Service for 

managing its natural resources and distributing proceeds from the sale of forest 

products according to provisions of the Act.

16 USC 1609 The Illinois Land This Act authorizes the conversion of Joliet Army Ammunition Plant to the Midewin

Conservation Act of 1995 National Tallgrass Prairie. Further, certain revenue receipts from the Midewin 

National Tallgrass Prairie are authorized for deposit into a special Treasury fund to be 

available for obligation until expended.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-45

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

16 USC 693d The Act of June 6, 1968 This Act authorizes the Secretary of Agriculture to cooperate with, and receive the 

cooperation of, public and private agencies and organizations and individuals in the 

development, administration, and operation of the Robert S. Kerr Memorial 

Arboretum and Nature Center in the Ouachita National Forest in Arkansas. The 

Secretary of Agriculture is authorized to accept contributions and gifts to further the 

purposes of the Act.

112 Stat. 297-298 Fiscal Year 1999 The Act authorizes the Secretary of Agriculture to manage and operate the Institute of 

Section 343 Appropriations Act Hardwood Technology Transfer and Applied Research (Institute), to generate 

revenues, and to accept gifts and donations that further the goals of the Institute as 

stated in the Act.

NFS

16 USC 1241-1251 National Trails System Sections 7 and 10 provide the authority for land acquisition, exchange, and donation 

Act of 1968, as amended for inclusion in the National Trails System.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-46

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

H.R. 2466 Mississippi National Authorizes the Secretary of Agriculture to sell or exchange U.S. right, title, and 

Forest Improvement Act interest in and to specified lands in Mississippi. Makes proceeds from such sales or 

of 1999 exchanges available for: (1) the construction of a research laboratory and office at the 

Forest Service administrative site at Mississippi State University at Starkville, 

Mississippi; (2) the acquisition, construction, or improvement of administrative 

facilities in connection with National Forest System units in the State; and (3) the 

acquisition of lands and interests in land for such units in the State.

NFS

P.L. 105-282 Rogue River Conveyance This Act authorizes the Secretary of Agriculture to convey the administrative site for 

and Improvement Act the Rogue River National Forest and use the proceeds for the construction or 

improvement of offices and support buildings for the Rogue River National Forest and

the Bureau of Land Management.

NFS

P.L. 105-171 Virginia Land Conveyance This Act authorizes the Secretary of Agriculture to sell or exchange all or part of 

and Improvement Act certain administrative sites and other lands in the George Washington National Forest

and the Jefferson National Forest, and to use the value derived there from to acquire a 

replacement site and to construct on the site suitable improvements for national forest 

administrative purposes.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-47

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

16 USC 544g Columbia River Gorge Sections 9 and 16a of the Act authorizes land acquisition within the Columbia River 

National Scenic Area Act Gorge National Scenic Area.

of 1986

NFS

P.L. 096-586 Burton-Santini Lake Tahoe Authorizes the Secretary of Agriculture, with the concurrence of the Tahoe Regional 

Basin Act of December Planning Agency, to acquire specified unimproved, environmentally sensitive land to 

23, 1980 be administered as part of the United States National Forest System or, if unsuitable 

for administration as such, to be transferred to a unit of State or local government with

specified restrictions. Permits the acquisition of specified portions of the Lake Tahoe 

Basin.

NFS

P.L. 095-495 Boundary Waters Canoe Authorizes funding to acquire land and water within the designated wilderness. Also,

Area Wilderness Act of see Act of June 22, 1948, as amended (16 U.S.C. 577h), cited in paragraph 3.

1978

NFS

7 USC 2269 Act of October 10, 1978 This Act authorizes the acceptance of donations of land or interests in land.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-48

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

16 USC 1643 The Act of June 30, 1978 This Act authorizes the acceptance and use of donated funds for research activities.

NFS

16 USC 1534 Endangered Species Act of Sections 5 and 15 authorize the acquisition of land to protect threatened and 

1973 endangered species

NFS

P.L. 106-329 Black Hills National To authorize the Secretary of Agriculture to sell or exchange all or part of certain 

Forest and Rocky administrative sites and other land in the Black Hills National Forest and to use funds

Mountain Research derived from the sale or exchange to acquire replacement sites and to acquire or 

 Station Improvement Act construct administrative improvements in connection with the Black Hills National 

Forest.

NFS

16 USC 1277 Wild and Scenic Rivers Sections 6 and 16 authorize land acquisition, exchange, and donation of land for 

Act of 1968, as amended inclusion in the Wild and Scenic River System.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-49

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

16 USC 4601, Land and Water This Act provides for deposit of funds for the acquisition of lands and interests for 

section 4-11 Conservation Fund Act of recreation, threatened and endangered species habitat, preservation of wetlands, and 

September 3, 1964, as other purposes.

amended

NFS

16 USC 1131-1136 Wilderness Act of 1964, as Sections 5 and 6 provide authority for acquisition, exchange, and donation of land for 

amended inclusion in the Wilderness System.

NFS

7 USC 428a Department of Agriculture This Act authorizes the acquisition of land by purchase, exchange, or other means, to 

Organic Act of 1956 carry out authorized work, provided that provision is made in applicable 

appropriations. This is one of the primary authorities for acquisition of lands with 

Land and Water Conservation Fund moneys.

NFS

16 USC 577h Act of June 22, 1948, as This Act authorizes appropriations for purchase and condemnation of lands in northern

amended Minnesota
FY 2011 Budget Justification USDA Forest Service

Authorities 17-50

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

 Executive Order 12580, Entitles "Superfund Implementation" that delegates to a

January 23, 1987 number of Federal departments and agencies the

authority and responsibility to implement certain

provisions of CERCLA. The policies and procedures

for implementing these provisions (e.g., carrying out

response actions and fulfilling natural resource

trusteeship responsibilities) are spelled out in the NCP.

NFS

16 USC 516, 521b Weeks Act of 1911, as Sections 1 and 2 authorize land acquisition for watershed protection and timber 

amended production. This is one of the primary authorities for land acquisition with Land and 

Water Conservation Fund moneys.

NFS

16 USC 1132 Eastern Wilderness Act of Sections 6 and 9 authorize the acquisition, exchange, and donation of land for 

1975 inclusion in the Eastern Wilderness system.

42 USC 1856a-d Fire Protection Authorizes agreements between agencies of the United States Government and other 

Agreements - Mutual Aid domestic agencies, including State and local entities and instrumentalities for mutual 

- Agencies aid in fire protection.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-51

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

16 USC 532-537 The Roads and Trails Act This Act authorizes the construction of roads using cooperative financing from other 

of October 13, 1964 agencies.

All

16 USC 572 Granger-Thye Act of This Act authorizes cooperation with other parties to perform work for permittees, 

April 24, 1950 agencies, organizations, and persons for work that the Forest Service is authorized to 

do, on lands of the United States.

16 USC 498 The Act of June 30, 1914 This Act authorizes the acceptance of contributions for cooperative work in forest 

investigations, protection, management, and improvement of the National Forest 

System.

16 USC 576-576b Knutson-Vandenberg Act This Act authorizes the use of collections from timber sale purchases for sale area 

of June 9, 1930, as amended improvement work, and for work anywhere within the region where the timber sale 

occurred.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-52

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

P.L. 108-148 Healthy Forests An act to improve the capacity of the Secretary of Agriculture and the Secretary of the 

Restoration Act of 2003 Interior to conduct hazardous fuels reduction projects on National Forest System lands

and Bureau of Land Management lands aimed at protecting communities, watersheds,

and certain other at-risk lands from catastrophic wildfire, to enhance efforts to protect 

watersheds and address threats to forest and rangeland health, including catastrophic 

wildfire, across the landscape, and for other purposes.

16 USC 579a Department of Agriculture Authorizes the Forest Service, by contract or otherwise, to provide for procurement 

Organic Act of 1944, as and operation of aerial facilities and services for the protection and management of the 

amended national forests and other lands administered by the agency.

P.L. 095-313 Cooperative Funds and Authorizes cooperation for fire protection for public good and where there is mutual 

Deposits Act benefit, other than monetary consideration.

NFS

P.L. 109-138 Terry Peak Land Transfer This Act requires the conveyance of certain National Forest System lands at the Terry

Act of 1999 Peak Ski Area to the private ski area owners and to utilize the proceeds to acquire 

more desirable lands for the United States for permanent public use and enjoyment.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-53

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

P.L. 101-11 Wildfire Suppression Act This Act authorizes reciprocal agreements with foreign fire organizations for mutual 

aid in wildfire protection.

NFS

P.L. 106-291 Boise Laboratory Authorizes the Secretary of Agriculture to sell or exchange the Boise (Idaho) 

Replacement Act of 2000 laboratory (laboratory) site (as defined by this Act), and use the resultant funds to 

acquire land and facilities to: (1) co-locate the laboratory with one of the Boise-area 

State institutions of higher learning; (2) replace other laboratory functions; and (3) 

acquire other land or interests in Idaho.

16 USC 551 Organic Administration Directs the Secretary of Agriculture to protect National Forests against destruction by 

Act of 1897, as amended fire and depredations.

NFS

P.L. 108-190 Coconino and Tonto Directs the Secretary of Agriculture to convey to certain private land owners specified 

National Forest Land lands in the Tonto National Forest in exchange for the conveyance by such land 

Exchange Act owners of certain lands adjacent to the Montezuma Castle National Monument and 

certain lands within the Coconino National Forest. Requires that the values of Federal

and non-Federal lands be equalized.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-54

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

P.L. 108-152 Florida National Forest Authorizes the Secretary of Agriculture to sell or exchange specified land in Florida. 

Land Management Act Requires the concurrence of the Secretary of the Air Force with respect to the sale or 

exchange of certain parcels of such land.

NFS

P.L. 106-526 Bend Pine Nursery Land A bill to authorize the Secretary of Agriculture to sell or exchange all or part of certain

Conveyance Act administrative sites and other National Forest System land in the State of Oregon 

and use the proceeds derived from the sale or exchange for National Forest System 

purposes.

NFS

P.L. 106-434 San Bernardino National To provide for the conveyance of a small parcel of public domain land in the San 

Forest Land Conveyance Bernardino National Forest in the State of California, and for other purposes.

and Settlement

NFS

P.L. 106-458 Arizona National Forest A bill to authorize the Secretary of Agriculture to convey certain administrative sites 

Improvement Act of 2000 in national forests in the State of Arizona, to convey certain land to the City of 

Sedona, Arizona for a wastewater treatment facility, and for other purposes.
FY 2011 Budget Justification USDA Forest Service

Authorities 17-55

Public Law USC reference Title of the Act or Affected Summary of Authority Programs 

Citation Programs Affected

Expires

NFS

P.L. 106-330 Texas National Forests To authorize the Secretary of Agriculture to convey certain administrative sites for 

Improvement Act of 2000 National Forest System lands in the State of Texas, to convey certain National Forest

System land to the New Waverly Gulf Coast Trades Center, and for other purposes.

P.L. 106-393 Community Forest Extends authorization to make funds available for use on non-Federal lands under 

Restoration Act State and Private Forestry appropriation

All

16 USC 572a Granger-Thye Act Authorizes assistance to perform work on other than Forest Service jurisdictions.