FY 2018 Budget Justification USDA Forest Service

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FY 2018 Budget Justification USDA Forest Service

Table of Contents i

FY 2018 Budget Justification

Table of Contents

 Page

Annual Performance Report.............................................................................................. 1

Appropriations Language Changes...............................................................................................................25

Forest and Rangeland Research.....................................................................................................................35

State and Private Forestry..............................................................................................................................43

Landscape Scale Restoration.............................................................................................................. 44

Forest Health Management ................................................................................................................ 45

Forest Health Management – Federal Lands...................................................................................... 49

Forest Health Management – Cooperative Lands .............................................................................. 53

Forest Stewardship Program .............................................................................................................. 57

Forest Legacy Program ...................................................................................................................... 60

Community Forest and Open Space Conservation............................................................................. 62

Urban and Community Forestry......................................................................................................... 64

International Forestry ......................................................................................................................... 66

National Forest System ...................................................................................................................................69

Collaborative Forest Landscape Restoration...................................................................................... 71

Land Management Planning, Assessment and Monitoring ................................................................ 73

Recreation, Heritage, and Wilderness ................................................................................................ 77

Wildlife and Fisheries Habitat Management ...................................................................................... 82

Hazardous Fuels................................................................................................................................. 87

Grazing Management ......................................................................................................................... 91

Forest Products................................................................................................................................... 94

Vegetation and Watershed Management............................................................................................ 97

Minerals and Geology Management .................................................................................................. 101

Landownership Management ............................................................................................................. 106

Law Enforcement and Operations...................................................................................................... 109

Capital Improvement and Maintenance........................................................................................................111

Facilities............................................................................................................................................. 112

Roads.................................................................................................................................................. 118

Trails .................................................................................................................................................. 122

Deferred Maintenance and Infrastructure Improvement .................................................................... 125

Legacy Roads and Trails.................................................................................................................... 129

Land Acquisition .............................................................................................................................................131

Other Appropriations .....................................................................................................................................137

Range Betterment Fund...................................................................................................................... 137

Gifts, Donations, and Bequest to Forest and Rangeland Research..................................................... 139

Management of National Forest Lands for Subsistence Uses ............................................................ 140

Wildland Fire Management............................................................................................................................143

Preparedness....................................................................................................................................... 146

Suppression ........................................................................................................................................ 148

National Fire Plan Research and Development.................................................................................. 152

Joint Fire Science Program................................................................................................................. 154

State Fire Assistance .......................................................................................................................... 156

Volunteer Fire Assistance .................................................................................................................. 158
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FLAME Wildfire Suppression Reserve Fund .................................................................................... 160

Permanent Appropriations.............................................................................................................................164

Brush Disposal ................................................................................................................................... 164

Hardwood Technology Transfer & Applied Research ....................................................................... 165

Timber Salvage Sales......................................................................................................................... 166

Timber Sale Pipeline Restoration....................................................................................................... 167

Forest Botanical Products................................................................................................................... 168

Stewardship Contracting .................................................................................................................... 169

Recreation Fees, Forest Service ......................................................................................................... 170

Timber Purchasing Election Road Construction ................................................................................ 172

Operation & Management of Forest Service Quarters ....................................................................... 173

Roads & Trails for States ................................................................................................................... 174

Land Between the Lakes Management............................................................................................... 175

Midewin National Tallgrass Prairie Rental Fees................................................................................ 176

Midewin National Tallgrass Prairie Restoration ................................................................................ 177

Quinault Special Management Area Fund.......................................................................................... 178

Restoration of Forest Lands & Improvements ................................................................................... 179

Commercial Filming & Still Photography Land Use Fee Retention .................................................. 180

Organizational Camps Program ......................................................................................................... 181

Cost Recovery (Land Uses)................................................................................................................ 182

Licensee Program Smokey Bear ........................................................................................................ 184

Licensee Program Woodsy Owl......................................................................................................... 185

Forest Service Go-Green Program (Conservation)............................................................................. 186

Conveyance of Administrative Sites .................................................................................................. 187

Site-Specific Lands Act...................................................................................................................... 190

Payment to States............................................................................................................................... 191

Trust Funds......................................................................................................................................................195

Cooperative Work - Knutson-Vandenberg......................................................................................... 196

Cooperative Work - Other.................................................................................................................. 197

Land Between the Lakes Trust Fund.................................................................................................. 199

Reforestation Trust Fund.................................................................................................................... 200

Special Exhibits ...............................................................................................................................................201

Biomass, Wood Products, and Wood Energy..................................................................................... 201

California Tree Mortality ................................................................................................................... 205

Chief’s Reserve Fund ......................................................................................................................... 207

Cost Pool Totals (both Direct and Indirect)........................................................................................ 209

Equal Access to Justice Act................................................................................................................ 216

Facilities Maintenance Assessment.................................................................................................... 227

Farm Bill Implementation .................................................................................................................. 231

Fire Transfers ..................................................................................................................................... 233

National Scenic and Historic Trails.................................................................................................... 234

Office of General Counsel Reimbursement........................................................................................ 241

Region, Station, and Area Allocations ............................................................................................... 242

Forest Service Research and Development Field Unit Budget Report............................................... 254

Stewardship Contracting .................................................................................................................... 271

Transition to Second Growth in Alaska ............................................................................................. 277

Unobligated Balances......................................................................................................................... 280

USDA Working Capital Fund, Central Cost Distribution and Departmental..................................... 282

Shared Cost Programs Charges.......................................................................................................... 282

Working Capital Fund, Forest Service ............................................................................................... 290
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Budget Authorities ..........................................................................................................................................291
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FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 1

USDA Forest Service

Annual Performance Report

Introduction

The Nation’s forests are a fundamental part of the American landscape, of the Nation’s identity, and are a legacy

that the Forest Service holds in trust for future generations. The forests provide clean air and water, recreational 

opportunities, jobs, and a multitude of forest products. The Forest Service plays a critical role in protecting and 

restoring America’s forests and grasslands and making them more resilient to threats and disturbances. In FY 2016, 

the Forest Service worked to enhance water resources, respond to the effects of drought, and reduce the threat of

catastrophic wildfire. The Forest Service demonstrates our achievements, identifies challenges, and examines 

program strategies and methods by using performance systems that measure activities and monitor performance

results throughout the year.

In the following pages the agency shares how performance management is evolving to focus on high-level agency

outcomes which will help make strategic investments to make the Nation’s forests and grasslands more resilient. This 

chapter presents three strategic goals, one management goal, and a cross-cutting emphasis on optimizing

organizational capacity. The objectives and the performance measures associated with each represent the agency’s

progress toward those goals. 

FY 2016

Key Performance Indicators FY 2012 

Actual

FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual Planned Actual

Acres treated annually to 

sustain or restore watershed 

function and resilience

2,569,617 2,533,121 2,906,018 3,100,979 2,900,000 3,214,598

Volume of timber sold 

(million board feet (MMBF)) 2,644 2,610 2,831 2,867 3,200 2,942

Percent of national forests in 

compliance with a drought 

adaptation and mitigation 

strategy

36% 49% 64% 88.5% 100% 100%

Percent of watersheds in 

properly functioning condition 52% 52% 52% 52% 52% 53%

Acres of wildland-urban 

interface (WUI) high-priority 

hazardous fuels treated

1,867,202 1,736,927 1,725,077 1,577,188 2,016,049 1,800,000

Mission Statement

The mission of the Forest Service is to sustain the health, diversity, and productivity of the Nation’s forests and

grasslands to meet the needs of present and future generations.

Forest Service Performance Management Framework

The Forest Service has an established performance management framework that tracks our outputs and outcomes 

and measures our progress towards goals. The framework begins with the agency strategic plan and then each 

programmatic area or function identifies evidence and performance measures that demonstrate progress towards 

established goals and objectives, and drive programmatic or strategic decisions. Some performance measures track 

program outputs and others inform short-, mid-, and long-term outcomes.

Targets are set annually for all measures in the Budget Justification. The targets are issued to the Regions, Stations,
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 2

and Area (generally referred to as “the field”) upon enactment of an Appropriations Bill or full year funding bill. As

work occurs on the ground throughout the year, the agency tracks and reports on accomplishments that support these

performance measures. These accomplishments represent the collective work of:

 more than 600 ranger districts on 154 national forests and 20 national grasslands,

 nine regional offices,

 northeastern area for State and Private Forestry, and

 seven primary stations including five research stations, the Forest Products Laboratory, and the 

International Institute for Tropical Forestry.

The agency reports official accomplishments annually to USDA, the Office of Management and Budget (OMB), 

Congress, and the public. Leadership also uses accomplishment data to inform progress and provide accountability 

for results.

Data Validity and Verification

The Forest Service uses a number of processes and controls to ensure data quality and validity. Beginning in FY 

2014, the agency started requiring that performance measures have an associated Data Quality Assurance (DQA) 

Plan that establishes data stewardship roles and responsibilities at various levels in the agency, names responsible 

personnel by role, and provides training modules tailored to roles intended to establish uniformity in the agency’s 

knowledge base on data stewardship. By the end of FY 2017, all measures will have a DQA Plan. Field staff and 

managers are responsible for the completeness and quality of the data at the ranger district, national forest, and 

regional levels. Regional leadership certify performance of all appropriate procedures to ensure validity and 

reliability of key performance data, and to document data that do not meet the standard.
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Annual Performance Report 3

Flow of Strategic Goals, Objectives, and Strategic Performance Goals

Strategic Goal: Sustain Our Nation’s Forests and Grasslands

Strategic Objective A: Foster Resilient, Adaptive Ecosystems to Mitigate Climate Change

By 2020:

 Improve or sustain productivity and ecological health on public and private forest and grazing land.

 Increase the proportion of acres with ecological benefit from natural ignition to 80 percent.

 Achieve a Forest Service-wide 25 percent reduction of Greenhouse Gas Scope 1 & 2 emissions and a 10 

percent reduction in Scope 3.1

Strategic Objective B: Mitigate Wildfire Risk

By 2020, reduce wildfire risk on the highest priority National Forest System lands by five percent.

Strategic Objective C: Conserve Open Space

By 2020, increase the connectivity of State and Private lands in priority areas and key National Forest System lands 

by 15 to 25 percent from 2014, and double the retention of working forests in key landscapes identified in Forest

Action Plans from 2014 baseline.

Strategic Goal: Deliver Benefits to the Public

Strategic Objective D: Provide Abundant Clean Water

By 2020, 54 percent of national forest and grassland watersheds will be functioning properly.

Strategic Objective E: Strengthen Communities

The agency will continue to achieve mandatory Procurement Preference Goals annually, ensuring that a significant 

portion of the agency’s contracted work is awarded to small, minority- owned, veteran-owned, or other

disadvantaged business category.

Strategic Objective F: Connect People to the Outdoors

By 2020, increase the percent of people engaging in meaningful outdoor experiences by six percent from 2014.

Strategic Goal: Apply Knowledge Globally

Strategic Objective G: Advance Knowledge

By 2020, increase the external use of Forest Service-based knowledge products by five percent from FY 2014 levels.

1The Greenhouse Gas Protocol separates greenhouse gas emissions into three different categories, or Scopes. Scope 1 emissions arise directly from sources 

that are owned or controlled by the agency, for example from fuels used in our boilers or the fleet vehicles; Scope 2 emissions are generated by purchased

electricity, heat or steam consumed by the agency; and Scope 3 emissions are a consequence of the activities of the Forest Service but occur from sources not

owned or controlled by us such as emissions associated with waste, water, business travel, commuting and procurement.
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Annual Performance Report 4

Strategic Objective H: Transfer Technology and Applications

By 2020, 90 percent of all enterprise Forest Service datasets designated for public consumption are externally

available to the public as downloadable files, map services, applications, or application program interfaces.

Strategic Objective I: Exchange Natural Resource Expertise

Job Corps Civilian Conservation Center students graduate with job placements at or above the Department of Labor

national average.

Management Goal: Excel as a High-Performing Agency

Strategic Goal: Sustain our Nation’s Forests and Grasslands

The Nation’s vast forests and grasslands are essential to the country’s ecological, physical, biological, economic, 

cultural, and social well-being. Impacts from severe wildfires, insects and diseases, invasive species, human 

activities, drought, extreme weather, and other visible disturbances have raised public awareness about the

environment. These impacts, combined with varying human demands, perpetually challenge our ability to ensure that 

ecosystems are healthy, resilient, and thus more adaptable to changing conditions. Long-term conservation across 

land ownership boundaries through collaborative partnerships and knowledge transfer can enhance the natural 

functions of the land and can contribute to sustainability—the ability of forests and grasslands to produce goods and

services that people want and need, both now and in the future.

Strategic Objective A. Foster Resilient, Adaptive Ecosystems to Mitigate Climate Change

Strategic Performance Goal: By 2020, improve or sustain productivity and ecological health on public and private 

forest and grazing land.

Overview

Millions of acres of public and private forests and grasslands are at risk due to uncharacteristically severe wildfires,

drought, and insect and disease outbreaks. By managing to this strategic performance goal, the Forest Service works 

to make forests and grasslands more resilient to threats, and more capable of delivering benefits to the American

people, while sustaining forest carbon sequestration and storage capacity to help mitigate the effects of drought. 

Resilient landscapes provide access to clean water, air, and fish and wildlife habitat, as well as the full range of

ecosystem services such as carbon sequestration, recreation access, and timber and biomass production.

Key Performance Indicators FY 2016

Indicator FY 2012 FY 2013 FY 2014 FY 2015 Target Actual

All lands restored/enhanced

(acres)

4,424,845 4,703,857 4,968,161 5,286,115 4,915,000 6,139,235

Grazing allotments

administered to standard

(acres)

30,396,997 29,268,333 29,794,000 28,605,088 27,000,000 29,711,012

Supporting Performance Indicators

FY 2016 marked the sixth year for the Collaborative Forest Landscape Restoration Program (CFLRP). The program 

continues to build collaborative partnerships and increase capacity for on-the-ground project implementation while 

making substantial progress in restoring ecosystem resilience and reducing the risk of uncharacteristic wildland fire 

on high-risk landscapes. The CFLRP has met or exceeded its five-year targets for a majority of performance 

measures, including timber volume sold, hazardous fuels reduced, and wildlife habitat improved. The program is on 

track to meet its lifetime goals over its 10-year timeframe. Also in 2016, in cooperation with The Nature 
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Annual Performance Report 5

Conservancy, the National Forest Foundation, and CFLRP partners, the agency strengthened outreach and 

understanding of the CFLRP by highlighting program accomplishments on 23 project fact sheets available at The 

Nature Conservancy website at: http://www.nature.org/cflr. (The project fact sheets were produced by The Nature 

Conservancy in partnership with the Forest Service and National Forest Foundation.)

In FY 2016, the Forest Service used authorities in the Agriculture Act of 2014 (Farm Bill) to accomplish 

collaborative restoration work at a landscape scale. To date, 67 projects have been proposed using the Farm Bill 

insect and disease provisions. These projects span eight regions, 37 national forests and 17 States. The agency used 

the Good Neighbor Authority to enter into cooperative agreements or contracts with States and Puerto Rico to allow 

them to perform watershed restoration and forest management services on Federal and non-Federal lands. Fifty-four 

agreements in 20 States have been executed with the Forest Service to perform a variety of restoration services. 

Master Agreements establish a framework for the State-Forest Service collaborative relationship with future projects 

identified in Supplemental Project Agreements. Master agreements have been executed in 17 States: Alabama, 

Arizona, California, Colorado, Florida, Idaho, Indiana, Michigan, Minnesota, Montana, New Hampshire, Oregon, 

Tennessee, Texas, Vermont, Wisconsin and Wyoming. In addition, stewardship contracting continued to be an 

important tool for achieving restoration outcomes.

Strategic Objective Progress Update

The annual acres of public and private forest lands restored or enhanced looks at a broad suite of treatments and 

work across the landscape including agency efforts under Integrated Resource Restoration (IRR) to improve

watershed function and resilience, a main driver of progress toward the stated objective. FY 2016 was the fifth year

the agency piloted the IRR Program in Regions 1, 3, and 4. Pilot regions continued integration across disciplines to 

plan and implement landscape-scale restoration projects in collaboration with partners and local communities to 

more efficiently achieve restoration outcomes. The IRR pilot has allowed the Forest Service to better integrate

resource programs to focus on high priority restoration work, address unexpected challenges, conduct larger projects 

and enter into multi-year contracts. In addition to landscape treatments undertaken, proper administration of grazing 

allotments helps to maintain healthy rangelands that sustain forage for livestock.

Across all regions in FY 2016, the agency increased restoration efforts while also maintaining strong timber and 

biomass programs important to rural communities and economies. More integrated work boosted our restoration 

efforts by reducing hazardous fuels on 2.1 million acres in the wildland-urban interface (WUI) resulting in reduced 

threats to communities. The agency also sustained or restored watershed conditions on 3.2 million acres, while

producing 2.94 billion board feet of timber volume sold. These accomplishments contribute to our goal of 

establishing healthy forests and grasslands resilient to the effects of drought. 

Strategic Performance Goal: By 2020, increase the Proportion of Acres with Ecological Benefit from Natural

Ignition to 80 Percent.

Overview

Wildland fire is a natural and necessary component of restoring and maintaining most of the ecosystems managed by

the Forest Service. Naturally-ignited fire can transform dead and dying material into nutrients, control insect 

populations, create habitat for wildlife, and foster conditions for establishment of plant communities. Many forest 

and grassland plant and animal species rely on immediate post-fire and early successional conditions for their

survival. Naturally-ignited wildland fires are an important part of work because fire can reduce hazardous fuels and 

restore resilience to landscapes, especially those ecosystems adapted to frequent fire. In addition, wildland fires can 

reduce the likelihood of high-severity fires in the future.

In addition to the ecosystem benefits, when the agency allows naturally-ignited fires to burn it can lower risks to 

personnel; and costs associated with suppressing fires as quickly as possible, or traditional, mechanical fuels 

treatments. Naturally-ignited wildland fires are often the most effective way to meet restoration objectives in remote

areas like wilderness. However, the Forest Service does not use this tool as often as it could. Internal or public 

pressure to put wildfires out quickly and the possibility of larger and more severe fires resulting from extensive

fuels buildup are major reasons. Our objective is to allow fire to resume its natural role in ecosystems by increasing

the percentage of wildland fires that naturally burn within safe parameters to benefit resources, thereby decreasing
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Annual Performance Report 6

the risk of catastrophic fires, better protecting communities, and creating and maintaining landscapes that are more

resilient.

Key Performance Indicators FY 2016 

Indicator FY 2012 FY 2013 FY 2014 FY2015 Target Actual

Percent of acres burned by natural 

ignition with resource benefits* - - 70% - - -

*This is a newly developed indicator that the agency is currently evaluating and piloting. An established baseline of 70% in FY 2014 replaces

annual targets.

The percentage equals the number of acres burned with resource benefits divided by the number of acres burned by naturally-ignited wildfires.

The use of natural fire for ecological restoration is dependent on natural fire activity, which is characteristically 

random. Fire managers always assess the potential wildfire spread, behavior, and values impacted by each wildfire 

to decide the best strategy and tactics. With increased education and decision support tools, fire managers will be 

better equipped to identify when the conditions are present to manage wildfire for resource benefits. Investing in 

decision support systems to inform agency leaders and fire managers’ decisions on when using natural fire can be 

safe and effective will support our objectives. Additionally, with targeted fuels treatments, more of the landscape 

will transition into a condition where fire can resume its natural role.

Strategic Objective Progress Update

In FY 2016, the agency began implementation on a pilot basis for this new indicator. Progress will be assessed at the

end of the five-year period (FY 2016-2021). The Forest Service expects to have preliminary results to compare

against the FY 2014 baseline in FY 2017. Since this is a new measure, the agency is using FY 2015 and FY 2016 

data to determine the best method to extract and calculate this indicator from two independent databases with 

different reporting cycles. Progress along this performance measure will represent improvement in the landscape 

condition and our wildland fire management practices. The measure is an indicator of how wildfire management, 

fire ecology, and agency leadership can work together to achieve desired conditions and leverage advantageous 

circumstances.

Strategic Performance Goal: By 2020, achieve a Forest Service-wide 25 Percent Reduction of Greenhouse Gas 

Scope 1 & 2 Emissions and a 10 Percent Reduction in Scope 3.

Overview

The Forest Service is integrating its land stewardship mission with practices that reduce consumption and achieve 

cost savings and efficiencies in overall resource use over the long run. Agency operations and assets must become

more resilient to extreme weather so the agency can continue to provide a high level of service while caring for the 

National Forest System (NFS) lands. There is a direct relationship between healthy forests and potable water, energy

consumption, waste management, clean air, and modes of transportation.

Increased attention to the consumption impacts and the cost of operations of the Federal sector reiterates the need for

expanding adoption of sustainable operations practices and behaviors. Greenhouse gas (GHG) emission measures

show progress in more finite areas such as renewable energy, reductions in petroleum consumption, and increased 

use of telework to reduce commuting-related emissions. The agency set bold targets under this goal, and actively

support activities that address the overall impacts of extreme weather, such as drought, and those that increase

operational and asset resiliency through greater efficiencies and cost savings.

The Forest Service continues to focus on four categories of activities to 1) provide easy access to accurate, 

transparent consumption and cost data; 2) increase footprint and cost and consumption awareness; 3) provide

organizational capacity to implement efficiencies; and 4) implement strategic reduction measures.
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Annual Performance Report 7

Key Performance Indicators

The key performance indicator is the GHG level reported by metric tons of carbon dioxide equivalent (MT CO2e) in

the Annual GHG Report to the USDA. The table below depicts totals reported for the past five years:

FY 2016

Indicator FY 2012 FY 2013 FY 2014** FY 2015

** Target Actual

**

Scope 1 & 2 GHG emissions, MT

CO2e

257,521 282,628 224,037 238,106 214,102 207,950

Scope 3 GHG emissions, MT CO2e 103,954 91,388 110,797 107,721 16,061 109,347

Total GHG emissions, MT CO2e 361,475 374,016 334,834 345,827 230,163 317,297

** Corrected figures differ from initial reporting

‡ Target based on adjusted baseline

Supporting Performance Indicators

The Forest Service conducts land stewardship using practices that reduce our resource consumption and 

environmental footprint. The agency is focusing on reducing on-the-ground consumption, piloting scalable 

innovations, and developing policy that is integrated and solution-oriented.

The agency measures footprint reduction in six areas: energy, water, waste reduction and recycling, fleet and 

transportation, sustainable acquisition, and sustainable leadership. Reducing the footprint in these areas supports 

changes in behaviors and systems that can have significant impacts on greenhouse gas reduction. The agency tracks 

our progress in these areas.

The Forest Service identified priority action items that were/are scalable agency wide and effective in reducing 

consumption. Priority actions in FY 2016 were to complete Utility Bill Cleanup to identify baseline energy 

consumption and implement a Vehicle Idling policy to reduce fuel consumption. The agency has phased 

implementation for both efforts. 

Strategic Objective Progress Update

In FY 2016, the agency improved data systems for all footprint areas and updated the baselines. The accuracy and

completeness of GHG emissions reporting varies with the accuracy and completeness of consumption data. For 

example, in FY 2014, utility payment systems changed partway through the fiscal year resulting in under-reporting

Scope 1 & 2 emissions; and in FY 2013, the agency did not report a subset of Scope 3 data. For that reason, numbers 

reported in the table above do not tell the full story of the Forest Service’s GHG emission profiles, and may not be 

an accurate measure of effectiveness. Data clean-up initiatives (such as completing the Utility Bill Cleanup) and 

standardizing reporting methodology resulted in improved reporting.

Strategic Objective B. Mitigate Wildfire Risk

Strategic Performance Goal: By 2020, Reduce Wildfire Risk on the Highest Priority National Forest System Lands 

by Five Percent.

Overview

The Fire and Aviation Management program supports the three goals of the National Cohesive Wildland Fire 

Management Strategy: fire-adapted communities, resilient landscapes, and safe, effective fire response. The 

prevention, preparedness, response, and hazardous fuels programs work together to reduce wildfire risk. The Forest 

Service cannot eliminate the occurrence of wildfire through prevention and fuel treatment programs. However, fuel 

treatments, along with preparedness, strongly affect our ability to prepare for, absorb the effects of, respond to, and 

recover from wildfire in both natural and human communities. Fuel treatments can also be instrumental in reducing 

risk in order to increase the number of acres that burn with resource benefit, as described in Strategic Objective A.
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Annual Performance Report 8

Fuel treatments provide safer conditions and more strategic options for fire managers and firefighters. Limited 

resources require the agency to prioritize areas for fuel treatment by risk (e.g., places where values are high, multiple

highly valued resources and assets are present and susceptible, the probability of fire is high, and/or expected fire

intensity is high), as well as where the agency can effectively mitigate risk by reducing expected fire intensity.

Although the benefit of individual fuel treatments is well known and documented, the Forest Service continues to 

move the Hazardous Fuels program towards becoming more risk-based. The Forest Service is evaluating the nature

and extent of the fuels problem in terms of risk from wildfire to key values, evolving towards determining treatment 

and funding priorities based on those risks, and developing ways to measure accomplishment and program success 

in terms of risk reduction.

Key Performance Indicators FY 2016

Indicator FY 2012 FY 2013 FY 2014 FY 2015 Target Actual

National Forest System 

Wildfire Risk Index - - 100 N/A* N/A* 100

*FY 2014 is the basline and will use the pilot years to set a target in FY 2020.

The Forest Service is piloting this newly developed indicator to describe the relative risk of wildfire on NFS lands 

over time. The agency worked with fire scientists to develop a national scale methodology. The agency piloted the 

measure using available data in FY 2016 and have established a FY 2014 baseline reading of the index and set the 

value at “100.” The area this indicator is evaluating is large—the entire NFS in the lower 48 States—so annual 

fluctuations are likely to be very small. For this reason, the agency has not identified annual targets, but have 

developed a 2020 target - the final year of the Strategic Plan. The measure is an index of relative “fire risk” based on 

the likelihood of a large fire impacting highly valued resources. Input data will be updated biannually. The Forest 

Service are developing procedures that may be able to estimate annual changes. The agency will re-calculate the 

index and determine whether there is an overall reduction in national risk. Changes that could affect the index 

include fuel treatments, wildfire, forest management, vegetation growth, increased WUI, insects and disease, and 

increases in fire-adapted communities.

Supporting Performance Indicators

Each fiscal year, the Forest Service measures the number of acres on which the agency treats hazardous fuels on the

NFS, both outside and inside the WUI. This helps the agency to evaluate the number of acres which the agency is 

attempting to reduce risk, but does not inform the nature of the risk, either before or after the treatment. In FY 2016, 

the agency made reporting changes to ensure tracking of the ‘footprint’ on the landscape by collecting spatial data.

Fire management personnel are using the spatial representation of fuel treatments to manage wildfires more

effectively and more safely. The Forest Service also monitors the efficacy of fuel treatments if a wildfire tests the 

effectiveness of the treatments. In addition to monitoring overall effectiveness, this data helps us to drill down into 

design factors to improve the prescriptive details of future treatments.

The Forest Service is also refining the way the agency accounts for acres treated for hazardous fuels reduction to 

better account for desired outcomes – actual acres where fuels have been effectively mitigated (footprint). In the 

past, reported hazardous fuels acres accomplishments reflected work awarded or completed, but not necessarily a 

mitigation of the hazardous fuel conditions. The Forest Service began tracking new measures in FY 2016 that count 

fuel treatment mitigation when the unit certifies completion of all the planned treatments and that the fuels are in the 

desired condition based on the relevant National Environmental Protection Agency documentation. The Forest 

Service continues to track intermediate treatments for continuity and for overall activity tracking, but will use the 

new measures for assessing outcomes (see the Hazardous Fuels section for more information on these new 

measures). More meaningful reporting will help the agency to focus on the most important work, to increase 

resilient landscapes, and reduce wildfire risk.

Strategic Objective Progress Update

The Forest Service plans to continue to pilot this newly developed indicator at the landscape scale while monitoring

and refining the national scale methodology. In FY 2016 the agency established the baseline conditions by 
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Annual Performance Report 9

completing national fire probability and intensity modeling and developing susceptibility of highly valued resources 

by identifying how these resources respond to various intensities of fire. As LANDFIRE fuels data is updated the 

agency will be able to assess the change in risk using the methods developed. Very little change may occur annually

in the risk index, due to the size of the evaluation area and the number of acres that the agency can treat to reduce

hazardous fuels each year. The purpose of this indicator is to assess landscape change over time and it will be most 

meaningful to assess outcomes at the end of a five-year period. This can provide critical information for monitoring 

trends in risk and evaluating the performance of previous risk mitigation investments.

Quantifying wildfire risk facilitates analysis of tradeoffs across highly valued resources and enables costeffectiveness analysis as a basis for evaluating risk mitigation options. The Forest Service has a limited capacity to 

do fuels treatment work, and risk assessment is one important way to prioritize treatments. The potential scope of 

the fuels problem nationally is large and constantly changing. This strategic performance goal and associated 

performance goal indicator are one way to ensure the agency is investing resources effectively and efficiently to 

address fuels treatment.

Strategic Objective C. Conserve Open Space

Strategic Performance Goal: By 2020, increase the connectivity of State and Private lands in priority areas and key

NFS lands by 15 to 25 percent from 2014, and double the retention of working forests in key landscapes identified in

Forest Action Plans from 2014 baseline.

Overview

The Nation loses an estimated 6,000 acres of open space each day, at an average rate of four acres per minute. By

2060, U.S. forest area is predicted to decline by 16-34 million acres.1In addition, 21 million acres of private rural

lands near National Forests and Grasslands will experience substantial housing density increases by 2030.2In the

west, private homes are present on 16 percent of the WUI. If 50 percent of the WUI were developed, the estimated 

cost of protecting the homes from catastrophic wildfires would be $4 to 5 billion.3

Open space development affects our ability to manage the national forests and grasslands, as well as our ability to 

help private landowners and communities sustainably manage their land to maintain ecosystem services. The Forest 

Service is working towards an interconnected network of open space across the landscape that supports healthy 

ecosystems and a high quality of life for Americans. Fully realized, this network of sustainably managed private

forests and rangelands, national forests and grasslands, other public land, riparian areas and wildlife corridors, and 

urban greenspaces will complement each other across the landscape to provide ecosystem services, wildlife habitat, 

recreation opportunities, and sustainable products.

One of our primary land management objectives is to increase the connectivity of forests and grasslands. 

Consolidating the fragmented lands into public ownership supports landscape and watershed level restoration efforts,

habitat management, and recreation access for the public. Undoing checkerboard ownership can make public lands

more accessible. Every square mile of checkerboard land acquired connects three square miles of lands. For example, 

the agency estimate that the 144,000 acres acquired through a land exchange on the Lolo and Flathead National

Forests in FY 2014 reconnected over 400,000 acres, bringing dramatic efficiencies of scale for wildfire protection, 

wildlife and game management, and public access. This example illustrates how connecting fragmented lands, 

especially in the WUI, provides multiple benefits: reduced cost for fire-fighting, reduced risk to firefighters, 

residents, and property, and a connected landscape to better support wildlife and recreation.4

 

1Future of America’s Forests and Rangelands: Forest Service 2010 Resources Planning Act Assessment. Forest Service GTR WO-87; August 2012. 

http://www.fs.fed.us/research/publications/gtr/gtr_wo87.pdf

2National Forests on the Edge: Development Pressures on America’s National Forests and Grasslands. Stein et. Al, 2007. 

http://www.fs.fed.us/openspace/fote/national_forests_on_the_edge.html

3 Headwaters Economics. Available at: http://headwaterseconomics.org/wildfire/fire-research-summary.

4 USDA OIG, Western Region, Audit Report, Forest Service Large Fire Suppression Costs, 7, 10, ii, Report No. 08601-44-SF, November 2006
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 10

Key Performance Indicators FY 2016

Indicator FY 2012 FY 2013 FY 2014 FY 2015 Target Actual

Annual acres of NFS lands 

acquired or donated 26,330 62,133 54,230 11,805 27,823 27,844

Private forest acres protected by the 

FLP through conservation

easements or fee-simple purchases

Annual

52,999 87,927 34,715 106,369 95,000 106,143

Acres protected by the Community

Forest Program through fee- simple

purchases Annual

- 1,803 4,421 1,122 -

* 1,304

Acres in important Forest Resource 

Areas covered by active Forest

Stewardship Plans and forest stand 

Management Plans Annual

- - -

Baseline 

being 

established†

- 1,040,458

Acres in important Forest Resource

Areas covered by Landscape

Stewardship Plans Annual

- - -

Baseline 

being 

established‡

- 1,778,554

*The agency does not set targets for this indicator because of the difficulty in predicting the closing dates for real estate transaction.

Reporting for this data transitioned to the SMART system in FY 2014. The agency is still assessing data for quality control purposes, so FY 2014

is a baseline year.

‡This is a new measure with only preliminary data in the system in FY 2014.

The Forest Service is evaluating potential metrics such as structural connectivity and aggregation, and will evaluate

how they work within and between geographic regions. This will help to evaluate the combined contributions of

agency investments on a landscape scale, rather than evaluating them solely on a program-by-program basis.

Supporting Performance Indicators

Supporting indicators focus on connectivity of key landscapes and retention of working forests. These indicators 

include the number of community forests established each year, and the associated acres of those forests that the 

Community Forest and Open Space program protects. Trends in these indicators help us to determine whether 

interest is growing in this relatively new program. The agency has established 21 community forests since the 

program’s inception in FY 2012, protecting a total of 8,651 acres. The number of application requests for this 

program helps to evaluate the demand, and helps to focus on outreach efforts regarding the program. In FY 2016, 

the agency was able to fund eight of 20 requests for funding and the program had four closings.

The agency also collects information on connectivity that helps evaluate its impact on watershed protection, critical 

imperiled species, and effects on the forest products industry. For example, the Georgia Department of Natural 

Resources acquired the 6,869-acre Lentile Longleaf Pine Tract, securing Georgia’s largest unprotected gopher 

tortoise population. The tortoise is a candidate for federal listing by the U.S. Fish and Wildlife Service, but the 

conservation of this tract could potentially prevent that. This outcome could avoid negative impacts on the State’s 

commercial timber industry, commercial activity and Department of Defense military installations.

The Landscape Stewardship Approach will allow the agency to increase connectivity in priority areas identified in 

States’ Forest Action Plans and retain more working forests while also helping private landowners consolidate their 

properties. The approach involves developing and implementing landscape-scale and community-based planning 

where State Forest Action Plans suggest that opportunities exist. To accomplish this, the Forest Service engages 

multiple owners of interconnected forest properties to achieve one or more forest resource management objectives, 

such as creating economies of scale for local forest product markets. In Hawaii, the Department of Land and Natural 

Resources, partners, and community members developed the 1,200 acre Kapapala Koa Canoe Forest’s management 

plan to restore the native Acacia koa forest for its environmental, cultural, and economic values. The innovative 

program introduces students to the complex interactions between the trees, birds, and water. In total, through this 
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 11

work, almost 1.8 million acres in important forest resource areas are now covered by Landscape Stewardship Plans. 

In 2016, the Forest Service completed an historic acquisition in the Smith River National Recreation Area on the Six 

Rivers National Forest in northern California. The acquisition, named “Hurdygurdy”, was the last large inholding in 

the recreation area. The 5,300 acres contains the headwaters of three streams - Hurdygurdy, Little Jones and 

Siskiyou Fork, all designated Recreational Rivers under the Wild and Scenic Rivers Act. These streams serve as 

vital spawning habitat for coho and Chinook salmon, steelhead and coastal cutthroat trout. The acquisition will 

protect public access and enhance recreational opportunities especially to the Smith River known as a premier 

salmon stronghold in California. Support from local stakeholders such as the Del Norte County Fish & Game 

Advisor Commission, as well as national groups such as Trout Unlimited was very strong, and Congressional 

members provided public support for the acquisition.

Strategic Objective Progress Update

Investments and partners have grown significantly, resulting in the protection of over 2.6 million acres of threatened 

forest landscapes. When partnering, the agency focuses on multi-landowner plans across the landscape and work to 

create economies of scale for local forest products markets. The agency manages over 14.4 million acres in important

forest resource areas under Forest Stewardship Plans. Pressures from rapid urban expansion will continue to increase, 

and stemming the tide of open space loss requires us to work at different scales among a variety of different agency

programs— nationally, regionally, and locally—and to tailor our approaches to fit geographic regions.

Strategic Goal: Deliver Benefits to the Public

America’s forests and grasslands are pivotal in providing a wide range of benefits to the American people. 

Sustainable land management helps forests and grasslands to remain healthy and enables them to continue

producing goods and services to meet multiple public demands, thereby contributing to human health, prosperity,

and quality of life for local communities and for the Nation as a whole. 

These lands provide recreational settings and opportunities; cultural and heritage resources; scenery; resources such 

as clean air and water, minerals, fish, wildlife, livestock forage, firewood, and various sources of renewable and 

nonrenewable energy; and corridors for communication and energy transmission. These benefits contribute billions 

of dollars to the national economy, underpin local economies in many rural areas and enhance the quality of life and 

sense of place for people in many communities.

Strategic Objective D: Provide Abundant Clean Water

Strategic Performance Goal: By 2020, 54 percent of national forest and grassland watersheds will be functioning

properly.

Overview

In addition to providing a wide array of ecological and community benefits, healthy forests play a critical role in 

protecting access to abundant clean water for drinking and for other purposes. A properly functioning watershed is 

essential to providing a host of benefits including potable water, sustained surface water and groundwater flow, and 

fish and wildlife habitat. This strategic performance goal relies on the Watershed Condition Framework (WCF) as a

foundation and guide for consistent identification of factors limiting a watershed’s condition, for determining the

overall condition of a watershed, and for prioritizing those watersheds on which to focus restoration efforts. The

annual results associated with this measure reflect not only work implemented within a given year, but represent the

culmination of integrated, watershed-based work that started with implementation of the WCF and development of 

associated watershed restoration action plans. By managing to this goal, the agency seeks to ensure abundant, clean 

and reliable sources of freshwater.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 12

Key Performance Indicators FY 2016

Indicator FY 2012 FY 2013 FY2014 FY2015 Target Actual

Number of watersheds moved to

an improved condition class

9 12 10 19 20 21

Acres treated annually to sustain or

restore watershed function and

resilience

2,569,617 2,533,121 2,906,018 3,100,979 2,900,000 3,214,598

Miles of stream habitat restored or

enhanced 3,704 4,168 3,488 3,465 3,262 3,832

Supporting Performance Indicators

Road decommissioning makes important contributions to our portfolio of restoration efforts by reducing the 

environmental impact of the agency transportation systems. Road decommissioning activities include restoring lands 

occupied by roads to a more natural state, which positively affects water quality. In FY 2016, the agency 

decommissioned 937 miles of roads. The agency targets roads that are no longer needed, as well as unauthorized 

roads that are not part of the transportation system.

Strategic Objective Progress Update

Forest Service continues to make progress toward our Strategic Performance Goal of having 54 percent of the 

national forest and grassland watersheds functioning properly by 2020. In spite of large-scale, catastrophic fires in 

recent years, the agency finished the year with 53 percent of watersheds in properly functioning condition. The 

immediate negative effect of uncharacteristically severe wildfires on watershed health and function continues to 

present the agency with challenges. Catastrophic fire seasons like true 2015 fire season can move watersheds to a 

degraded condition faster than our investments and improvements can restore other areas. In addition to catastrophic 

fire, other disturbances on the landscape can also degrade watershed health and function. While the agency cannot 

control natural events on the landscape, the agency can focus treatment efforts to make watersheds more resilient to 

natural threats.

From FY 2012 to FY 2016, the agency completed the necessary work to improve the condition of 71 watersheds. 

The agency continues to accelerate accomplishments in this arena, more than doubling the number of watersheds 

improved in FY 2016 from what the agency accomplished as recently as FY 2014. The agency has ongoing 

restoration work underway in over 150 other priority watersheds. During FY 2016, the IRR pilot regions improved 8 

of the 21 total watersheds that was moved to an improved condition class. As an outcome measure, the annual result 

is not only reflective of work implemented this year, but represents the culmination of integrated, watershed-based 

work that began when the agency developed watershed restoration action plans. As the agency continues to gain 

experience working under the Working Capital Fund, it is apparent that it may take us 5-10 years to complete all the 

restoration actions under some watershed plans instead of the 3-5 years originally envisioned, due to complexity, 

cost, and other restoration priorities.

The Forest Service is seeing an increased ability to achieve outcomes at a larger scale by working in a more 

integrated manner. Strong performance across all regions drove FY 2016 results, with the agency achieving a four 

percent increase over FY 2014 in acres treated annually to sustain or restore watershed function and resilience. This 

measure is important because, as a composite of a number of activities across the landscape, it reflects restoration 

progress throughout the agency. Integrated work in the IRR regions and a sustained focus on restoration work across 

the Forest Service contributed to this result.

Stream restoration work directly affects habitat for threatened, endangered, and sensitive aquatic species, as well as 

for native fishes with commercial and non-commercial value, and for desired non-native species important to 

recreational fishing. For the third year in a row, the Forest Service took advantage of integrated planning and the 

effective use of partnerships to exceed our goal. The agency plan many fisheries and aquatic restoration projects in 

collaboration with partners in a more integrated manner at a broader landscape scale. Stream restoration projects, 

many of them benefitting a large number of stream miles at once through invasive species removal or re- opening 
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 13

access to historically occupied habitat, often require longer planning cycles. Once planning is complete, project 

implementation occurs within a short timeframe based on funding availability and partner readiness. The increased

accomplishments are a result of these collaborative planning efforts in previous years coming on line for

implementation and our partners rallying their resources to help finance the accomplishments. The cumulative 

accomplishments associated with this measure are critical to our threatened, endangered, and sensitive aquatic

species restoration.

Strategic Objective E: Strengthen Communities

Strategic Performance Goal: The agency will continue to achieve mandatory Procurement Preference Goals 

annually, ensuring a significant portion of the agency’s contracted work is awarded to small, minority-owned, 

veteran-owned, or other disadvantaged business category.

Overview

With over $1.2 billion expended on contracts annually, the Forest Service has a responsibility to foster growth in the

small businesses that strengthen communities and assist us in delivering on our mission. The agency accomplishes

this by setting aside contract actions for small business concerns.

5

By contracting with small businesses, Forest Service contributes to a strong economy, job creation, and greater

partnerships between our agency and the communities surrounding the national forests and grasslands. 

Key Performance Indicators FY2016

Indicator 

Prime Contracting – Business

Type

FY

2012

FY

2013

FY

2014

FY

2015

Forest 

Service 

Target

Actual

Small Business 82.1% 80.6% 84.1% 80.5% 72% 82.0%

Small Disadvantaged Business 230.9% 16.3 19,2% 19.4% 17% 19.1%

Woman-Owned Business 13.3% 15.9% 17.9% 17.5% 9% 14.4%

Historically Underutilized Business

Zone

10.0% 10.3% 9.4% 8.1% 10% 7.00%

Service-Disabled Veteran- Owned

Small Business 3.9% 2.8% 3.4% 3.6% 4% 3.60%

Supporting Performance Indicators

Achievement of procurement preference goals is the primary indicator of our success in awarding as many contract 

actions to small business concerns as possible. Other non-measurable indicators include increased awareness by

small businesses of opportunities to contract with the government, achieved through agency participation in national 

and local small business events, and our increased use of electronic media to share contracting opportunities with a

wider audience.

Strategic Objective Progress Update

While the Forest Service clearly has a great impact on strengthening communities across the Nation, the agency is

still developing the measure it will ultimately use to evaluate progress towards this strategic objective. The agency 

will continue to refine potential measures of success until the agency identifies which set will best reflect progress 

toward strengthening communities. The Forest Service has been, and remains committed to, strengthening 

 

5A small-business concern is “one that is independently owned and operated, is organized for profit, and is not dominant in its field.” “What Is SBA’s 

Definition of a Small Business Concern?” U.S. Small Business Administration, N.p., n.d. Web. 11 Dec. 2014.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 14

communities through contracting with small businesses. The Forest Service routinely meets, and generally exceeds, 

most of its goals. As an example, the FY 2015 small business goal for the Forest Service was 72 percent, but the 

agency was able to award over 82 percent of its FY 2016 contracting funds to small business concerns.

The Forest Service will continue to seek support from small business concerns first, and strive to strengthen 

communities through these actions and in many other ways. Rural forests and urban trees provide ecological, 

economic, and social benefits to communities of all size. As an example, in FY 2014 the agency estimated that the 

monetary value from recreation for all goods and services adds slightly more than $10 billion to the gross domestic 

product (GDP), and sustained about 143,000 full- and part-time jobs. In FY 2011, all Forest Service activities 

combined contributed to nearly 450,000 jobs nationwide, mostly to rural communities near the national forests and 

grasslands. The agency also convene partnerships and collaborations between State and local governments, 

academic institutions, and the private sector, helping to strengthen relationships between many groups in a 

community around natural resources, thereby reinforcing community bonds and fostering shared community 

prosperity.

Strategic Objective F: Connect People to the Outdoors

Strategic Performance Goal: By 2020, increase the percent of people engaging in meaningful outdoor experiences 

by six percent from 2014.

Overview

The Nation's rich history reveals the vital role the outdoors has played in defining the people and the country. From 

lakes and rivers to forests and mountains, the outdoors is a place for Americans to create lasting memories and 

serves as a conduit for economic growth and job development. The outdoor industry supports 6.1 million American 

jobs and $646 billion in outdoor recreation spending each year. Spending time in nature benefits physical and mental 

health, academic performance, and overall quality of life. Research has shown that childhood activities in natural 

environments have a significant, positive association with adult environmental attitudes and behaviors. 

However, there is an increasing disconnect between nature and people, especially children, in America today. 

Today’s more urbanized youth spend 50 percent less time in natural areas than youth did 20 years ago. Additionally, 

the shift toward sedentary lifestyles is a major contributor to the decline in children's health. Over the past three

decades, childhood obesity rates have tripled. Opportunities for youth to engage with nature improve advanced 

motor fitness, and enhance powers of observation and creativity.

The Forest Service is working to help foster a Nation of citizen stewards committed to restoring forest health—from

backcountry areas to shaded urban neighborhoods, parks, and greenways—to ensure that stewards sustain the public

and private forests and that the forests remain relevant to future generations.

Key Performance Indicators FY 2016

Indicators FY 2012 FY 2013 FY 2014 FY 2015 Target Actual

Number of visits where people are

satisfied with NFS facilities,

services, and settings

155,440,300 151,210,400 143,727,700 139,074,400 N/A* 141,390,700

Number of people who annually

participate in Forest Service 

environmental literacy programs 

and activities

6,878,710 4,562,348 6,808,901 7,459,632 N/A* 8,164,586

Number of volunteers and service

participants caring for the land

and serving people

107,797 103,159 109,800 100,146 100,000 104,320

*The agency does not set targets for this indicator but uses the measure to inform program decisions.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 15

While the Forest Service measures a number of important indicators that help assess progress towards the 2020 

Goal, the agency is working to develop methods to assess meaningful connections to ensure that the agency is 

engaging citizens in ways that will be sustainable into the future. While the Forest Service does not track the number 

of satisfied visitors each year, the agency does not set a national target, and instead use the information to help 

identify trends and public demand. The agency recently upgraded the national database used to record educational 

and outreach activities. Increases in 2014 and 2015 indicators may represent improved reporting rather than 

increased contacts. These numbers provide an index of the agency’s outreach and education efforts, and future 

reporting will reflect more accurately the number of people reached through these efforts

Supporting Performance Indicators

The Forest Service offers high-quality interpretative experiences on NFS lands from informative displays at trailhead 

lodges to ranger-led hikes, to community service days. The most recent analysis of the latest National Visitor Use 

Monitoring Survey results estimates that nearly 149 million visitors recreated on NFS lands in FY 2014. This

equates to an estimated recreation contribution of approximately $10 billion and 143,000 jobs to local economies.

6

The Discover the Forest campaign has an extensive audience reach. Since the campaign’s launch in 2009, it has 

received $399.9 million in donated media across several mediums, including TV, radio, OOH (out of home 

advertising) and digital. Among the Discover the Forest campaign target audience (parents of tweens 8-12), 

recognition of the website URL DiscoverTheForest.org has grown significantly since the campaign launched, from 3 

percent in June 2011 to a monthly median of 20 percent between October 2014 and May 2015. In the first quarter of 

2016, 47 percent of respondents said they took their children to a forest or park at least two times per month, up 

from 33 percent in the quarter of 2014. Since its inception, the campaign has partnered with four major movie 

studios utilizing movie characters from Shrek, The Lorax, Smurfs 2, and Rio 2, and developed campaigns aimed to 

reach general market, Hispanic, parents of girls, African-American, and urban parents of kids aged 7-12. In FY16, 

the campaign partnered with critically acclaimed film Kubo and the Two Strings to launch creative assets in support 

of the Discover the Forest message. The campaign also was selected by Facebook to receive over $300K in targeted 

donated media across the Facebook and Instagram platforms.

Today more than ever, the public receives its information digitally, primarily via mobile devices. The agency 

worked across disciplines and boundaries to improve public access to real-time recreation data. The agency 

implemented initial steps towards a single, unified recreation database to support high-quality recreation data, and 

which will improve the information available through Recreation.gov and other social media and web-based 

applications that facilitate outdoor recreation. The Interactive Visitor Map 2.0 released in June 2016, and has been 

averaging 25,000 page views per month. The map presents authoritative roads, trails, and recreation site information 

and provides visitors with trip-planning information for recreational opportunities available on the national forests, 

grasslands and other areas. The new map version improves access to the recreation information through an 

innovative and practical web site that functions well on desktops and mobile devices.

In support of its goal to advance winter recreation activities, the agency published the final Over-Snow Vehicles 

rule, Part C of the Travel Management Rule, a policy that sets principles for consistent field implementation. The 

new rule expands winter recreation opportunities for the public and provides additional economic benefits for 

communities, while ensuring natural resource protection.

Our 21st Century Service Corps (21CSC) partnership provides an enormous return on investment, allowing the 

Forest Service to address critical conservation restoration needs and simultaneously have a deep and lasting impact 

on the people who participate, thereby building the next generation of natural resource professionals. From FY 2014 

through FY 2016, the agency has employed 30,000 youth and veterans on more than 2,000 distinct projects; 

expanded YCC jobs by 58 percent to 1,500 in FY 2016; implemented a Resource Assistants Program for students, 

recent graduates and others that is building a diverse pool of qualified and experienced candidates for permanent 

positions; and orchestrated growth in the 21CSC organization, recognizing and approving 201 partner organizations.

 

6 National Visitor Use Monitoring Survey Results, USDA Forest Service National Summary Report,

http://www.fs.fed.us/recreation/programs/nvum/
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 16

Strategic Objective Progress Update

The Forest Service has undertaken a focused effort in recent years to better connect citizens, especially youth, to the 

national forests and grasslands, and their natural heritage nationwide. In 2016, the agency has continued to focus on 

the 2015 Forest Service Integrated Strategy for Youth. This document provides a cohesive vision of what the agency 

strives to achieve through our youth engagement efforts. 

In this increasingly diverse, urbanized, and technology-focused world, the agency needs to work harder to connect 

citizens to the outdoors and to meet them where they are—in communities, in schools, and through new media. 

Forest Service outreach programs that effectively use new media, including Discover the Forest, with a strong social 

media component on Facebook, Twitter, Instagram, and Tumblr, encourage parents and families to go outdoors and 

discover the forest. This program also includes a Spanish language component, an education program completely 

based on internet outreach, and a series of special outreach PSAs in Spanish to reach America’s Latino population 

with information and resources about the natural environment. These are 21st Century challenges and this strategic 

performance goal will help us to develop tools to meet that challenge to ensure the Nation’s forests and grasslands 

are sustained into the future.

Strategic Goal: Apply Knowledge Globally

Through intellectual inquiry and knowledge transfer, the Forest Service provides land managers and other partners 

with enhanced information, applications, and tools for improved resource management and decision-making. The 

agency is constantly improving our knowledge of complex environmental processes, biological and physical 

conditions, resource uses, human and social dimensions, the economic value of the resources the agency manages, 

and the interconnectivity among these elements. To benefit from global knowledge, the agency interacts and share

knowledge with partners worldwide. The transfer of knowledge, technology, and applications will help the global 

natural resource community make better management decisions in the collective effort to care for all lands and 

deliver sustainable benefits to people.

Strategic Objective G: Advance Knowledge

Strategic Performance Goal: By 2020, increase the external use of Forest Service-based knowledge products by 5

percent from FY 2014 levels.

Overview

Forest Service research provides land managers and others with information, applications, and tools for improved 

resource management and decision-making. Scientific research helps advance knowledge about complex

environmental processes, biological and physical conditions, resource uses, human and social dimension, the

economic value of natural resources, and the interconnections among these elements. From natural resource

management to long-term strategic policy development, our efforts to sustain forest and grasslands now and into the

future depend on new knowledge, information, and applications.

Key Performance Indicators FY 2016

Indicator

FY

2012

FY

2013

FY

2014

FY

2015

Target Actual

FIA – percent of States with FIA data available 92% 96% 98% 98% 98% 98%

The Forest Inventory and Analysis (FIA) indicator measures the thoroughness with which the Forest Service

quantifies the Nation’s resources. The FIA program inventories the status and trends in tree species, size, and health; 

forest area and location; tree growth, mortality, and removal by harvest; wood production and utilization; and forest 

land ownership. The FIA assessments extend to the trust territories and Puerto Rico and include reports on changes 

in carbon budgets and forest health.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 17

Supporting Performance Indicators

In order for external partners and organizations to use Forest Service-based knowledge products with confidence, 

the agency consistently produces high-quality products. Formally and informally refereed publications are the 

primary means by which Forest Service research communicates the scientific basis for land management and policy 

decisions. These publications go through a peer review process to ensure quality and relevance. During FY 2016, 

Forest Service research scientists’ published 2,022 documents that passed the peer review evaluation for quality and 

relevance. In addition, research scientists produced 319 science delivery products and 2,744 science delivery 

activities.7,8

Wildland fire and fuels research 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, while protecting lives and property. 

The fire science indices measure the rate at which our scientists publish peer-reviewed products specifically on fire 

science, and serve as an index of the progress toward advancing knowledge in fire science. The Quality Science 

Index for fire is a measure of the annual refereed publication rate per fire scientist per year and was 4.9 for 2016. To 

put this in context, the target for this metric was 4.5, and the values for FY 2011 through 2015 ranged from 4 to 5.2. 

The Output Efficiency Index for fire is a measure of the annual publication rate per fire scientist, and was 4.2 in FY 

2016. The target for that measure was three and the values for this metric ranged between 3 and 3.5 for FY 2011 

through 2015.

Fire and Aviation Management is an integral partner with the wildland fire and fuels Research and Development 

program, and actively supports alignment of research, development, and application strategies and products with 

national outcomes focused on resilient landscapes, human communities, and safe and effective wildfire response. 

Examples include development of new safety zone guidelines for firefighters, implementing regional risk 

assessments in the National Cohesive Wildland Fire Management Strategy, and ensuring science-based wildland fire 

management through two research, development, and application centers and the National Center for Decision 

Support. The 2014 Wildland Fire Management Annual Report includes results of this partnership.

Strategic Objective Progress Update

National, State, and local policy makers, universities, businesses, Tribal governments, national forests and 

grasslands, other natural resource agencies, interest groups, and many others depend on models, information and data

for timely, scientific credible assessments about U.S. forests. The FIA program collects, analyzes, and reports on the

status and trends of America’s forests, such as how much forest exists, where it exists, who owns it, and how it is 

changing. The agency derives many benefits from FIA information, including supporting planning and ecosystem

management practices, monitoring forest health, providing the basis for decision-making activities undertaken by

public and private enterprises, and anticipating weather related impacts to forests. The Forest Service supports the

creation of better tools for making the FIA data easier to access, and to help the public get what they need from the 

databases. For example, the agency created an online tool called “EVALIDator” that summarizes inventory data on 

the FIA website, and is accessible to the public.

Strategic Objective H: Transfer Technology and Applications

Strategic Performance Goal: By 2020, 90 percent of all enterprise Forest Service datasets designated for public 

consumption are externally available to the public as downloadable files, map services, applications, or APIs.

Overview

The Forest Service has made significant strides in transferring technology and applications by making datasets 

available as part of its commitment to OMB’s Open Data Policy. The agency works across business and technology 

user groups to inventory datasets managed by agency program areas, and to prioritize the datasets most useful to the

 

7 Science Delivery Products: Number of products developed to enhance the usefulness of scientific information that have not been published in formally or

informally refereed outlets, regardless of durable delivery format, that are delivered to clients in clear and accessible formats.

8 Science Delivery Activities: Number of activities undertaken to enhance the usefulness of scientific information that are delivered to clients in clear and

accessible formats.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 18

public.

Once additional data sets are identified for public consumption the Forest Service ensures data is standardized, 

authoritative, securely interfaced, and effectively maintained and updated before publishing through data.gov. Our 

goal is to make data available and accessible to users and integrate data sets into our business systems to provide 

real-time analysis and updates.

Key Performance Indicators

The key performance indicators for this goal are the number of datasets available within Data.Gov, and increased

availability for interested organization to search datasets. The Forest Service has chartered the Information 

Management Advisory Board (IMAB) to begin tracking publically available data sets and incorporate enterprise 

governance processes to ensure data standards are met and identified information for the public is accurate and 

secure.

Key Performance Indicators FY 2016

Indicator FY 2012 FY 2013 FY 2014 FY 2015 Target Actual

Datasets Registered with Data.gov - 1 2 2 2 2

Map Services Registered with 

Data.gov - 5 51 68 86 86

API Registered with Data.gov - - 51 68 86 86

Applications Registered with 

Data.gov - - 0 0 0 0

Strategic Objective Progress Update

The Forest Service CIO will maintain the Enterprise Data Warehouse (EDW) as a repository for datasets; map and 

web servers to publish map services and other APIs; and an external website for hosting datasets that the agency will 

make available to the public as downloadable files. Currently, the Forest Service has many sites from which data can 

be disseminated, but with exception to EDW, has no agency-wide view or summary, nor information on the data 

quality for most sites. In FY 2017 prioritized identification of enterprise data for data.gov dissemination will be a 

priority. The agency will also address a number of management challenges including insufficient resources to 

collect, edit, and quality control all data and insufficient support resources for governance and dissemination.

Strategic Objective I: Exchange Natural Resource Expertise

Strategic Performance Goal: Job Corps Civilian Conservation Center students graduate with job placements at or 

above the Department of Labor national average.

Overview

The U.S. Department of Labor (DOL) contracts with the Forest Service to operate 26 Job Corps Civilian 

Conservation Centers (Job Corps Centers). These centers span 22 national forests and grasslands in 17 States, with a 

capacity to educate and train over 5,000 enrollees. The DOL provides oversight and funding to the Job Corps 

Program, which is a free Federal career technical training and education program for income-eligible young adults 

age 16 through 24. The goal of Job Corps is to teach job and social skills to disadvantaged young adults to help them 

obtain education and training, find good-paying jobs, and become independent. The program includes housing, food, 

basic health care, and living allowances. In addition, it provides students transition counseling, job search assistance 

and referrals, and follow-up services after they graduate. The maximum duration per person in the Job Corps 

program is two years, averaging eight to twelve months.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 19

With employment training that supports Forest Service needs, including wildland firefighting and hazardous fuels 

reduction, watershed protection, recreation, forestry, and facilities maintenance. Job Corps Centers have a longstanding history instilling a conservation ethos and serving rural America. Integrated with the Forest Service, Job 

Corps advances the legacy of public land conservation, creates opportunities to connect youth with nature, and 

provides training and employment opportunities that support economic development for individuals and local 

communities. Today, Job Corps Centers are continuing the tradition of protecting Americans’ natural heritage, and 

providing programs of work-based learning to conserve, develop, manage, and enhance public lands.

Key Performance Indicators

FY 2016

Indicator

FY 

2012

FY 2013 FY 2014 FY 2015

Target Actual

JCCCC Percent Placement Rate 82% 82% 87% 84% 90% 85%

Supporting Performance Indicators

Job Corps students volunteer their time as part of their training programs, thereby giving students the opportunity to 

exchange and apply what they are learning in the classroom. The students also contribute to National wildland fire 

suppression efforts by providing camp crews and Type II fire crews, composed of students who have earned 

certification as wildland firefighters. In 2016, the Job Corps Fire Program trained and red-carded 1,100 Job Corps 

students as firefighters, camp crew members, or administrative support personnel. Upon successful completion of 

the Job Corps Fire Program requirements, students are able to compete for permanent or seasonal appointments or 

for hiring under the Public Lands Corps authority. The Job Corps Fire Program training in Program Year 2015 

resulted in hiring 44 Job Corps students into permanent fire positions (Federal, State and County agencies).

The Schenck Job Corps Advanced Fire program maintains a standing initial attack crew. This cadre supplements and 

exchanges the education and skills they develop in their Job Corps program with experience in wildland firefighting, 

a discipline that relies on natural resource expertise across multiple agencies and jurisdictions. Aside from placing 

graduates in land management agencies, Job Corps supported the exchange of natural resource expertise through the 

3,100 volunteer students who participated and contributed to public lands projects and fire incidents.

Strategic Objective Progress Update

In FY 2016, the agency had a goal that students would graduate with job placements at or above the DOL national 

average. The agency used the Public Lands Corps and Pathways authorities to increase our placement rates for Job 

Corps graduates within the USDA and the Department of the Interior (DOI). By placing Forest Service Job Corps 

graduates in land management bureaus within DOI, the agency is fostering cross-Department knowledge and 

experience in natural resource management. The Forest Service is implementing a priority hiring emphasis in the 

disciplines of fire, recreation management, wilderness management, and engineering. These programs will provide 

increased placement opportunities for students in Federal land management agencies, who will be well poised to 

exchange their knowledge and experience in natural resource management across departments and agencies. During 

FY 2016, 3,100 Forest Service Job Corps students contributed thousands of volunteer hours on the nation’s public 

lands. These hours translate into $7 million in value. The top three Job Corps student volunteer activities were fire 

prevention, facilities construction, and recreation maintenance/construction maintenance.

Management Goal: Excel as a High-Performing Agency

The Forest Service is committed to excelling as a high performing agency that promotes an inclusive culture and 

retains a top workforce. The FY 2015 – FY 2020 Strategic Plan includes a Management Goal that lays out our vision 

for fostering a diverse, inclusive, and engaged workforce. While the agency is assessing the best performance 

measures to evaluate success, the agency will focus on several key areas for improvement. To transform the 

organizational culture, the agency is focusing on seven critical areas: leadership development, employee 

development, talent management, recruitment and retention, customer focus, community outreach, and process 

improvement. An agency culture that fosters diversity and encourages new perspectives will strengthen our ability to 
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 20

meet public expectations. By joining people with diverse perspectives, the Forest Service will find new solutions to 

complex management challenges, and will make better-informed natural resource decisions.

One way the agency will measure the effectiveness of operations over the next five years is by improving the 

retention rate. The agency is improving the work environment, and focusing leadership efforts on translating the 

results of the Federal Employee Viewpoint Survey into actionable items that will address employee concerns. Forest 

Service is improving leadership communication and increasing engagement with employees, creating and fostering 

skills in leaders, supervisors, and managers to address work environment issues, and developing leadership 

competencies. The agency long-term goal is to ensure Forest Service employees are valued and respected for their 

diverse talents, ideas, backgrounds, and abilities. This will ensure they are well-positioned to serve the public into 

the future. This includes making new connections with diverse members of the public to increase awareness of – and 

access to – the Forest Service.

Optimize Organizational Capacity – Crosscutting Responsibilities

The Forest Service’s ability to fulfill its mission depends on having an optimal organizational capacity. This section 

addresses how the agency will measure effectiveness for crosscutting measures. The desired outcome is to provide 

an effective and efficient business foundation for the agency that helps us to achieve the mission. The agency 

provides a critical business infrastructure that maintains efficient, consistent, and continuous operations of all 

agency business programs, functions, and processes. In FY 2016, Human Resource Management held a total of 

eleven Workforce Planning and Hiring Engagement Sessions, one per Region/Station/Area. The sessions, conducted 

annually, are forums for senior leaders, hiring managers, planners, administrators, and workforce planning 

practitioners throughout the agency to engage in discussions centered on strategic workforce planning.

The Forest Service offers several key retention programs to employees: mentoring, wellness, and telework and 

flexible work schedules. Other than retention incentive bonuses, which affect few employees (46 employees in FY 

2016), there is not a direct way to measure the number of employees the agency retains. While it is feasible to 

measure the numbers of employees who are hired and lost, it is difficult to account for the movement of employees 

across regions, stations and areas.

Mentoring provides employees with challenging opportunities to form new connections, broaden their experience, 

and cultivate new skills. The Forest Service Mentoring Program benefits employees and the agency by strengthening 

the workforce to ensure a steady pool of talented, skilled, and motivated employees to serve as future leaders. 

Mentorship is an excellent way to transfer institutional knowledge and to enhance employee skills.

The Forest Service implemented a phased retirement program pilot. Phased Retirement is a workforce planning tool 

that allows qualified employees, with management approval, to work part-time and collect half of their Federal 

Retirement Annuity simultaneously. The goal of the program is to allow eligible employees to transition corporate 

knowledge to the workforce while they themselves transition into retirement. While participating, the employee 

works a half-time schedule and draws half of their retirement annuity. At the end of their phased retirement 

agreement, the employee enters full retirement. The pilot program began in April 2016 and currently there are seven

employees participating in the program with six more employees working through the process to participate.

The Forest Service Office of Occupational Health and Safety provides a number of resources on health and wellbeing. One of the most popular programs is the allowance of time for fitness participation. Other programs include 

the Employee Assistance Program (EAP), accident investigation, Workplace Violence Prevention, and the lactation 

program.

Depending on the type of position, many Forest Service employees participate in Alternative Work Schedule (AWS) 

programs, which can enable managers and supervisors to meet their program goals while allowing employees more 

flexibility in scheduling their personal activities. As employees gain greater control over their time, they can balance 

work and family responsibilities more easily, become involved in volunteer activities, and take advantage of 

educational opportunities.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 21

Telework provides Forest Service employees the opportunity to telework up to full-time and including at the 

employee’s home or another alternative work site. The objective of this program is to maintain and improve our

efficiency in meeting the agency mission, reduce automobile-created air pollution and traffic congestion, reduce our

carbon footprint, improve employee morale, increase productivity, and make the Forest Service an employer of

choice. Telework offers an alternative to the traditional work environment that yields significant benefits to the

agency and to employees. Studies show employees who telework are often more productive and generate better

quality work because of the quiet environment with minimal interruptions. They avoid long commutes, thereby 

reducing stress levels and contributing to better health. Management can attract and retain employees in critical 

occupations and positions, target labor markets such as individuals with disabilities, and enable offices to conduct 

their work more efficiently by allowing flexibility in the workplace. The Telework program is an excellent way to 

attract individuals with disability and limited mobility. Technological advances enable managers to offer assistive 

technology that accommodates an individual’s impairment. Employees who are injured, recuperating, and physically

limited may be able to work at home and complete work assignments while minimizing sick leave use.

The Forest Service assigns the USDA New Supervisor AgLearn training to all newly hired and newly promoted 

supervisors. Part of this training includes lessons on Cultural Diversity in the workplace and nondiscrimination. 

Training assignments will continue, as new supervisors are hired and promoted. In addition, the agency periodically 

assign the USDA Experienced Supervisor training to identified experienced supervisors. These training curriculums 

will assist supervisors in maintaining leadership competencies and align with USDA Departmental Regulations.

The Senior Leader Program is a blended-learning leadership development program in support of the Forest Service 

succession planning. Leaders of the Forest Service are committed to preparing our successors, nurturing their talent 

and developing their leadership competencies. The program, based on the “Leaders Growing Leaders” framework, 

includes considerable opportunity to meet and interact with leaders at the highest level. This development 

opportunity offers a rich diversity of learning experiences in residential, dialogue, distance learning, group and selfdirected activities. This session is for high performing, highly motivated individuals who want to accelerate their 

leadership competencies, learn how to be champions of employee engagement for diversity, inclusion, safety, and to 

learn and perfect skills that will help face the future challenges of USDA Forest Service.

In FY 2016, the Forest Service offered eight regional sessions of the National Middle Leader Program. The program 

is dynamic, cost effective, embraces generational differences and meets the Forest Services’ needs now and in the 

future. It focuses on the competencies most critical for development at the middle leader level. The course objectives 

are to encourage life-long learning, encourage self-management and personal discovery and provide participants 

with a consistent and nationwide access to a standard curriculum, coaching, and career stretching experiences.

The agency will continue to implement our Continuity of Operations (COOP) plans under the requirements 

established by the National Security 51 (NSPD-51), Homeland Security Presidential Directive 20 (HSPD-20), 

National Continuity Policy Implementation Plan, Federal Continuity Directive 1 (FCD 1), and Continuity Guidance 

Circular 1 (CGC 1). These directives ensure that the agency continues to perform Mission Essential Functions 

(MEFs) during a wide range of emergencies, including localized acts of nature, accidents, and technological or 

attack-related emergencies. These MEFs directly support the eight National Essential Functions (NEFs) that 

represent the overarching responsibilities of the Federal Government to lead and sustain the Nation, and will be the 

primary focus of the Federal Government’s leadership during and in the aftermath of an emergency.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 22

External Audits and Reviews

FY 2016 Office of Inspector General (OIG) Audits on the Forest Service: OIG Open Audits

Audit Number

Audit

Title

Report 

Issue 

Date

Audit Status

08601-02-41 Firefighting Cost-Share Agreements with Non-Federal 

Entities 01/08/2016

Closure requests submitted to 

OCFO for 7 of 8 

recommendations. 

Recommendation 8 is due June 

2017.

08601-04-41 FS Wildland Fire Activities-Hazardous Fuels Reduction 08/16/2016

Implementation of corrective 

actions in progress.

OIG Audits Officially Closed in FY 2016

Audit Number Audit Title Report Issue 

Date

Closure Date

08601-01-CH Rights-of Way and Easements 04/30/2012 03/23/2016

08601-01-31 Oversight and Compliance Audit 03/24/2015 08/05/2016

08601-03-31 Controls over the Stewardship Contracting Process for Land 

Management of National Forests

09/30/2015 08/11/2016

08601-55-SF Administration of Special Uses 07/07/2011 09/13/2016

Summary of OIG Audits

OIG Audit Summary Status Number

FY 2016 Beginning Inventory 4

Audits added 2

Subtotal 6

Audits closed 4

FY 2016 Ending Inventory 42

FY 2016 Government Accountability Office Audits

Audit Report 

Number Audit Title

Report Issue 

Date Audit Status

GAO-16-44 Excess Personal Property: DOD Should Further Reassess 

the Priorities of Its Disposal Process

1/29/2016 No recommendations. No 

further actions required.

GAO-16-165 Hardrock Mining: BLM and Forest Service Have Taken 

Some Actions to Expedite the Mine Plan Review Process 

but Could Do More 

2/22/2016 Implementation of corrective 

actions in progress.

GAO-16-456 Tongass National Forest: Forest Service's Actions Related 

to Its Planned Timber Program Transition

4/25/2016 No recommendations. No 

further actions required.

GAO-16-559 Unauthorized Grazing: Actions Needed to Improve 

Tracking and Deterrence Efforts

7/7/2016 Implementation of corrective 

actions in progress.

GAO-16-699 Advanced Technologies: Strengthened Federal Approach 

Needed to Help Identify and Mitigate Supply Risks for 

Critical Raw Materials

9/7/2016 No recommendations. No 

further actions required.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 23

Management Challenges

The OIG issues its annual report to the Secretary on the most serious management challenges that USDA and its 

agencies face on August 26, 2016. To identify these challenges, the OIG examined issued audit reports with 

recommendations where agencies have yet to take corrective actions, assessed ongoing investigative and audit work 

to ascertain significant vulnerabilities, and analyzed new programs and activities that could pose significant

challenges due to their range and complexity. This year, the report did not include challenges specific to the Forest 

Service so a formal action plan was not required.
FY 2018 Budget Justification USDA Forest Service

Annual Performance Report 24

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FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 25

Appropriations Language Changes

Title III

Related Agencies

Department of Agriculture

Appropriations Language uses the Consolidated Appropriations Act, 2016, (P.L. 114-113) as the baseline. Material 

proposed for deletion is enclosed in brackets; new language is underscored.

FOREST SERVICE

FOREST AND RANGELAND RESEARCH

1. For necessary expenses of forest and rangeland research as authorized by law, 

[$291,000,000]$259,000,000, to remain available until expended: Provided, That of the funds provided, 

[$75,000,000]$77,000,000 is for the forest inventory and analysis program.

Note 1: No language changes are proposed.

STATE AND PRIVATE FORESTRY

1.

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, [$237,023,000]$118,010,000, to remain available until expended, as 

authorized by law[; of which $62,347,000 is to be derived from the Land and Water Conservation Fund].

Note 1: Deletes reference to Forest Legacy Program since no funds are requested.

NATIONAL FOREST SYSTEM (INCLUDING TRANSFER OF FUNDS)

1.

2.

3.

4.

For necessary expenses of the Forest Service, not otherwise provided for, for management, protection, 

improvement, and utilization of the National Forest System, and for hazardous fuels management on or 

adjacent to such lands, [$1,509,364,000]$1,747,442,000, to remain available until expended: Provided, 

[That of the funds provided, $40,000,000 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 of the funds provided, up to $162,000,000 may be [transferred] used to support the 

Integrated Resource Restoration pilot program for Region 1, Region 3 and Region 4: Provided further, 

That of the funds provided [$359,805,000]$359,121,000 shall be for forest products: Provided further, 

That of the funds provided, $354,288,000 shall be for hazardous fuels management activities, of which 

not to exceed $15,000,000 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 System lands: Provided further, That of the funds 

provided, up to [$81,941,000] $15,000,000 [is for the Integrated Resource Restoration pilot program for 

Region 1, Region 3 and Region 4: Provided further, That of the funds provided for forest products, up to 

$65,560,000 may be transferred to support the Integrated Resource Restoration pilot program in the 

preceding proviso: Provided further, That the Secretary of Agriculture may transfer to the Secretary of 

the Interior any unobligated funds appropriated in a previous fiscal year for operation of the Valles 

Caldera National Preserve] may be used by the Secretary of Agriculture to enter into procurement 

contracts or cooperative agreements or to issue grants for hazardous fuels management activities, and for 

training or monitoring associated with such hazardous fuels management activities on Federal land, or on 

non-Federal land if the Secretary determines such activities benefit resources on Federal land. In addition, 

$4,500,000, to remain available until expended, from communication site rental fees established by the 

Forest Service for the cost of administering communication site activities.

Note 1: Provides funding for the Hazardous Fuels Program (moved from Wildland Fire Management). 

Note 2: Deletes reference to Collaborative Forest Landscape Restoration since no funds are requested.
FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 26

Note 3: Indicates total funding for the Integrated Resource Restoration Program instead of funding by 

contributing budget line item.

Note 4: Language added to reflect proposed legislation for communication site fee retention,

CAPITAL IMPROVEMENT AND MAINTENANCE 

1.

2.

For necessary expenses of the Forest Service, not otherwise provided for, [$364,164,000]$99,693,000, to 

remain available until expended, for construction, capital improvement, maintenance and acquisition of 

buildings and other facilities and infrastructure; and for construction, reconstruction, decommissioning of 

roads that are no longer needed, including unauthorized roads that are not part of the transportation 

system, and maintenance of forest roads and trails by the Forest Service as authorized by 16 U.S.C. 532–

538 and 23 U.S.C. 101 and 205: Provided, [That $40,000,000 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 becoming available in fiscal year [2016]2018

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.[: Provided further, That of the funds provided for decommissioning of roads, up to 

$14,743,000 may be transferred to the "National Forest System" to support the Integrated Resource 

Restoration pilot program.] 

Note 1: Deletes reference to Legacy Roads and Trails since no funds are requested.

Note 2: Deletes reference to Integrated Resource Restoration program since no Legacy Roads and Trails 

funds are requested.

LAND ACQUISITION

1.

For expenses necessary to carry out the provisions of chapter 2003 of title 54, United States Code, 

including administrative expenses, and for acquisition of land or waters, or interest therein, in accordance 

with statutory authority applicable to the Forest Service, [$63,435,000]$7,000,000, to be derived from the 

Land and Water Conservation Fund and to remain available until expended.

Note 1: No language changes are proposed.

ACQUISITION OF LANDS FOR NATIONAL FORESTS SPECIAL ACTS

1.

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; and the Ozark and Ouachita National Forests, Arkansas, as authorized by 

law, [$950,000]$850,000, to be derived from forest receipts.

Note 1: P.L. 108-350 authorizes the Secretary of Agriculture to sell or exchange all or part of certain 

administrative sites and other land in the Ozark and Ouachita National Forests. Reference to the 

Ozark and Ouachita National Forests was not made in past appropriations language and the 

intent of public law could not be realized.

ACQUISITION OF LANDS TO COMPLETE LAND EXCHANGES

1. 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 (16 U.S.C. 484a), to remain available until expended (16 U.S.C. 516–617a, 

555a; Public Law 96–586; Public Law 76–589, 76–591; and Public Law 78–310).

Note 1: No language changes are proposed.

RANGE BETTERMENT FUND

1. 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 
FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 27

the 16 Western States, pursuant to section 401(b)(1) of Public Law 94–579, to remain available until 

expended, of which not to exceed 6 percent shall be available for administrative expenses associated with 

on-the-ground range rehabilitation, protection, and improvements.

Note 1: No language changes are proposed

GIFTS, DONATIONS AND BEQUESTS FOR FOREST AND RANGELAND RESEARCH

1. For expenses authorized by 16 U.S.C. 1643(b), $45,000, to remain available until expended, to be derived 

from the fund established pursuant to the above Act.

Note 1: No language changes are proposed.

MANAGEMENT OF NATIONAL FOREST LANDS FOR SUBSISTENCE USES

1. 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), 

[$2,500,000]$2,225,000, to remain available until expended.

Note 1: No language changes are proposed.

WILDLAND FIRE MANAGEMENT (INCLUDING TRANSFERS OF FUNDS)

1.

2.

3.

For necessary expenses for forest fire presuppression activities on National Forest System lands, for 

emergency wildland fire suppression on or adjacent to such lands or other lands under fire protection 

agreement,[hazardous fuels management on or adjacent to such lands,] emergency rehabilitation of 

burned-over National Forest System lands and water, and for State and volunteer fire assistance, 

[$2,386,329,000]$2,495,038,000, 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 any unobligated 

funds appropriated in a previous fiscal year for hazardous fuels management may be transferred to the 

“National Forest System” account: 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, $6,914,000 of funds appropriated under this appropriation shall be available for 

the Forest Service in support of fire science research authorized by the Joint Fire Science Program, 

including all Forest Service authorities for the use of funds, such as contracts, grants, research joint 

venture agreements, and cooperative agreements: 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 management activities, support to Federal emergency response, and wildfire 

suppression activities of the Forest Service: ]Provided further, That of the funds provided, [$375,000,000 

is for hazardous fuels management activities, [$19,795,000]$17,600,000 is for research activities and to 

make competitive research grants pursuant to the Forest and Rangeland Renewable Resources Research 

Act, (16 U.S.C. 1641 et seq.), [$78,000,000]$69,400,000 is for State fire assistance, and 

[$13,000,000]$11,600,000 is for volunteer fire assistance under section 10 of the Cooperative Forestry 

Assistance Act of 1978 (16 U.S.C. 2106): Provided further, That amounts in this paragraph may be 

transferred to the ["National Forest System", and] "Forest and Rangeland Research" [accounts] account to 

fund 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 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 affected parties:[ 

Provided further, That up to $15,000,000 of the funds provided herein may be used by the Secretary of 

Agriculture to enter into procurement contracts or cooperative agreements or to issue grants for hazardous 

fuels management activities and for training or monitoring associated with such hazardous fuels 

management activities on Federal land or on non-Federal land if the Secretary determines such activities 
FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 28

4.

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 nonFederal lands in accordance with authorities made available to the Forest Service under the "State and 

Private Forestry" appropriation: 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, between the Departments when such transfers would 

facilitate and expedite wildland fire management programs and projects: [Provided further, That of the 

funds provided for hazardous fuels management, not to exceed $15,000,000 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 System lands: 

]Provided further, That funds designated for wildfire suppression[, including funds transferred from the 

"FLAME Wildfire Suppression Reserve Fund"], shall be assessed for cost pools on the same basis as such 

assessments are calculated against other agency programs[: Provided further, That of the funds for 

hazardous fuels management, up to $24,000,000 may be transferred to the "National Forest System" to 

support the Integrated Resource Restoration pilot program].

Note 1: Hazardous Fuels program was moved to the National Forest System since all hazardous fuels 

work occurs on National Forest System Lands.

Note 2: Allows for the transfer of unobligated Hazardous Fuels funds to the National Forest System.

Note 3: Deletes reference to the Joint Fire Science Program since no funds are requested.

Note 4: Deletes reference to FLAME since no funds are requested.

FLAME WILDFIRE SUPPRESSION RESERVE FUND (INCLUDING TRANSFERS OF FUNDS)

1. [For necessary expenses for large fire suppression operations of the Department of Agriculture and as a 

reserve fund for suppression and Federal emergency response activities, $823,000,000, to remain 

available until expended; Provided, That such amounts are only available for transfer to the “Wildland 

Fire Management” account following a declaration by the Secretary in accordance with section 502 of the 

FLAME Act of 2009 (43 U.S.C. 1748a).]

Note 1: Deletes reference to FLAME since no funds are requested.

ADMINISTRATIVE PROVISIONS FOREST SERVICE (INCLUDING TRANSFERS OF FUNDS)

1. 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 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).

Note 1: No language changes are proposed.
FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 29

1.

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 upon the 

Secretary's notification of the House and Senate Committees on Appropriations that all fire suppression 

funds appropriated under the [headings]heading "Wildland Fire Management[and "FLAME Wildfire 

Suppression Reserve Fund"]will be obligated 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].

Note 1: Deletes reference to FLAME since no funds are requested.

1. 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 U.S., private, and international organizations. The Forest 

Service, acting for the International Program, may sign direct funding agreements with foreign 

governments and institutions as well as other domestic agencies (including the U.S. Agency for 

International Development, the Department of State, and the Millennium Challenge Corporation), U.S. 

private sector firms, institutions and organizations to provide technical assistance and training programs 

overseas on forestry and rangeland management.

Note 1: No language changes are proposed.

1.

1.

Funds appropriated to the Forest Service shall be available for expenditure or transfer 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.

Note 1: No language changes are proposed. 

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]107-171 (7 U.S.C. 8316(b)).

Note 1: Deletes incorrect reference to public law.

1.

None of the funds available to the Forest Service may be reprogrammed without the advance [approval 

of]notification to the House and Senate Committees on Appropriations in accordance with the 

reprogramming procedures contained in the explanatory statement [described in section 4 (in the matter 

preceding division A of this consolidated Act)]accompanying this Act.

Note 1: Language deleted because it limits agency flexibility. 

1. Not more than $82,000,000 of funds available to the Forest Service shall be transferred to the Working 

Capital Fund of the Department of Agriculture and not more than $14,500,000 of 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 and the Department of 

Agriculture's International Technology Service.

Note 1: No language changes are proposed. 
FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 30

1. Of the funds available to the Forest Service, up to $5,000,000 shall be available for priority projects 

within the scope of the approved budget, which shall be carried out by the Youth Conservation Corps and 

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.

Note 1: No language changes are proposed.

1. 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.

Note 1: No language changes are proposed.

1. 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 funds made 

available by the Forest Service on at least a one-for-one basis [funds made available by the Forest 

Service]: Provided further, That the Foundation may transfer Federal funds to a Federal or a non-Federal 

recipient for a project at the same rate that the recipient has obtained the non-Federal matching funds.

Note 1: Language changed for clarity and readability.

1. Pursuant to section 2(b)(2) of Public Law 98–244, up to $3,000,000 of the funds available to the Forest 

Service 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-for-one 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.

Note 1: No language changes are proposed.

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.

Note 1: No language changes are proposed.

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.

Note 1: No language changes are proposed. 

1. Any funds appropriated to the Forest Service may be used to meet the non-Federal share requirement in 

section 502(c) of the Older Americans Act of 1965 (42 U.S.C. 3056(c)(2)).

Note 1: No language changes are proposed.

1. Funds available to the Forest Service, not to exceed $65,000,000, shall be assessed for the purpose of 

performing fire, administrative and other facilities maintenance and decommissioning. Such assessments 
FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 31

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.

Note 1: No language changes are proposed.

1.

Notwithstanding any other provision of law, of 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 [nonlitigation-related] matters unrelated to civil litigation. 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 sums requested for transfer.

Note 1: Language changes are proposed to increase transparency.

1. An eligible individual who is employed in any project funded under title V of the Older Americans 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.

Note 1: No language changes are proposed.

Title IV

GENERAL PROVISIONS

(Including Transfers of Funds)

[RESTRICTION ON USE OF FUNDS]

1. [SEC. 401. 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.]

Note 1: Language deleted because it limits agency flexibility.

OBLIGATION OF APPROPRIATIONS

1. SEC. [402]401. No part of any appropriation contained in this Act shall remain available for obligation 

beyond the current fiscal year unless expressly so provided herein. 

Note 1: No language changes are proposed.

FOREST MANAGEMENT PLANS

1. SEC. [407]406. 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.

Note 1: No language changes proposed.
FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 32

PROHIBITION WITHIN NATIONAL MONUMENTS

1. SEC. [408]407. 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.

Note 1: No language changes proposed.

LIMITATION ON TAKINGS

1.

SEC. [409]408. 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 of]providing advance notification to 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.

Note 1: Language deleted because it limits agency flexibility. Proposed language provides notification to 

Congress if agency uses authorities.

[TIMBER SALE REQUIREMENTS]

1. [SEC. 410. No timber sale in Alaska’s Region 10 shall be advertised if the indicated rate is deficit 

(defined as the value of the timber is not sufficient to cover all logging and stumpage costs and provide a 

normal profit and risk allowance under the Forest Service’s appraisal process) when appraised using a 

residual value appraisal. The western red cedar timber from those sales which is surplus to the needs of 

the domestic processors in Alaska, shall be made available to domestic processors in the contiguous 48 

United States at prevailing domestic prices. All additional western red cedar volume not sold to Alaska or 

contiguous 48 United States domestic processors may be exported to foreign markets at the election of the 

timber sale holder. All Alaska yellow cedar may be sold at prevailing export prices at the election of the 

timber sale holder]

Note 1: Language deleted because it limits agency flexibility and creates an excessive administrative 

burden. Current law requires residual value appraisal and domestic use of timber.

POSTING OF REPORTS

1. SEC. [412]410. (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.

Note 1: No language changes proposed. 

RECREATION FEE

1. SEC. 411.Section 810 of the Federal Lands Recreation Enhancement Act (16 U.S.C. 6809) is amended by 

striking “September 30, 2018”and inserting “September 30, 2019”.

Note 1: Extends authority for the Federal Lands Recreation Enhancement Act (16 U.S.C. 6809).
FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 33

[STATUS OF BALANCES OF APPROPRIATIONS]

1. [SEC. 415. The Department of the Interior, the Environmental Protection Agency, the Forest Service, and 

the Indian Health Service shall provide the Committees on Appropriations of the House of 

Representatives and Senate quarterly reports on the status of balances of appropriations including all 

uncommitted, committed, and unobligated funds in each program and activity.]

Note 1: Proposed for deletion as this creates an excessive administrative burden and duplicates existing 

financial reporting protocols.

CONTRACTING AUTHORITIES]

1. SEC. [421]416. Section 412 of Division E of Public Law 112–74 is amended by striking [‘‘fiscal year 

2015,’’] “fiscal year 2017,” and inserting [‘‘fiscal year 2017,’’] fiscal year 2019”.

Note 1: Updates year of expiration.

EXTENSION OF GRAZING PERMITS

1. SEC. [423]418. The terms and conditions of section 325 of Public Law 108–108 (117 Stat. 1307), 

regarding grazing permits issued by the Forest Service on any lands not subject to administration under 

section 402 of the Federal Lands Policy and Management Act (43 U.S.C. 1752), shall remain in effect for 

fiscal year [2016]2018.

Note 1: Address concerns that, with respect to grazing permits issued by the Forest Service, the 

amendments of section 402 of Federal Land Policy and Management Act (FLPMA) (43 U.S.C. 1752) in 

the National Defense Authorization Act for FY 2015 (P.L. 113-291) incorporated the authority in 325 

only as it applied to grazing on National Forests in the 16 contiguous western states but not to grazing on 

National Grasslands and on eastern National Forests. With the addition of this section, the terms and 

conditions in section 325 of P.L. 108-108 would apply to grazing permits issued by the Forest Service on 

any National Forest System lands.

FOREST SERVICE FACILITIES REALIGNMENT AND ENHANCEMENT ACT

1. SEC 420. Section 503(f) of the Forest Service Facility Realignment and Enhancement Act of 2005 (16 

U.S.C. 580d note: Public Law 109-54) is amended by striking “2016” and inserting “2018”.

Note 1: Reauthorizes the Forest Service Facilities Realignment and Enhancement Act, which expired at 

the end of 2016.

SMALL TRACTS CONVEYANCE AUTHORITY, LAND ADJUSTMENT, PROGRAM, NATIONAL FOREST 

SYSTEM

1.

SEC. 421 The Act of January 12, 1983 (commonly known as the Small Tracts Act (16 U.S.C. 521c –

521i)) is amended—

 (1) in section 3—

 (A) in the introductory text, by striking “$150,000" and inserting “$500,000";

 (B) in paragraph (2) by striking “; or” and inserting a semicolon; 

 (C) in paragraph (3), by striking the period and inserting a semicolon; and

 (D) by adding at the end the following—

“(4) parcels of 40 acres or less which are determined by the Secretary to be physically 

isolated, to be inaccessible, or to have lost their National Forest character;

“(5) parcels of 10 acres or less and encumbered by permanent habitable improvements 

which are not eligible for conveyance under the Encroachment Category, but which are not 

intentional trespasses nor for which existing information would have prevented the 

encroachment;

“(6) parcels used as a cemetery, a landfill, or a sewage treatment plant under a special
FY 2018 Budget Justification USDA Forest Service

Appropriations Language Changes 34

use authorization issued by the Secretary.

 (2) by adding at the end the following—

“SECTION 8. DISPOSITION OF PROCEEDS.

 “(a) IN GENERAL.—The net proceeds derived from any sale or exchange under 

paragraphs (4), (5) and (6) of section 3 shall be deposited in the fund established by Public Law 

90-171 (commonly known as the “Sisk Act”) (16 U.S.C. 484a).

“(b) USE.—Amounts deposited under subsection (a) shall be available to the Secretary, 

without further appropriation, and shall remain available until expended for—

“(i) the acquisition of land or interests in land for administrative sites for the 

National Forest System in the State;

“(ii) the acquisition of land or interests in land for inclusion in the National Forest System within the 

State, including those which enhance recreational access opportunities.

Note 1: Increases the amount authorized to spend per parcel.
FY 2018 Budget Justification USDA Forest Service

Forest and Rangeland Research 35

Forest and Rangeland Research

Appropriation Forest and Rangeland Research

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest and Rangeland Research

Annual Appropriations $291,000 $290,447 $259,000 -$31,447 -11%

Forest and Rangeland Research Total 291,000 290,447 259,000 -31,447 -11%

Annual Appropriation FTEs 1,746 1,746 1,554 -192 -11%

Total Full-Time Equivalents (FTEs) 1,746 1,746 1,554 -192 -11%

Forest and Rangeland Research

Wildland Fire & Fuels R&D 21,179 21,197 17,838 -3,359 -16%

Invasive Species R&D 33,551 33,551 28,274 -5,277 -16%

Recreation R&D 4,228 4,228 3,557 -671 -16%

Resource Management & Use 89,250 88,679 75,228 -13,451 -15%

Water, Air & Soil R&D 33,824 33,824 28,498 -5,326 -16%

Wildlife & Fish R&D 25,928 25,928 21,849 -4,079 -16%

Inventory & Monitoring R&D 83,040 83,040 83,756 716 1%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Forest and Rangeland Research

Customer satisfaction index score for R&D 76 76 77

Number of patent applications filed (5-year rolling average) 0 12 0

Patent licenses executed on a 5 year rolling average 2 2 2

Science Delivery Products 310.0 486.0 261.0

Percent of Nation with accessible FIA data 98.0% 100.0% 100.0%

Quality Science Index - peer-reviewed fire science publications per 

scientist year on a 3-year rolling average 4.2 3.0 3.0

Output Efficiency Index - total fire science products per scientist year on 

a 3-year rolling average 4.9 4.5 4.0

Invasive species tools developed, delivered and used on a 5-year rolling 

average 274 190 200

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $259,000,000 for Forest and Rangeland Research (Forest Service R&D), 

a net decrease of $31,447,000 from the FY 2017 Annualized CR (including $1,002,000 for annualization of the 2017 

pay increase and $2,439,000 for the 2018 pay increase) and a decrease of 192 staff years ($290,447,000 and 1,746 

staff years available in 2017). Within the FY 2018 budget request is $77,000,000 for the Forest Inventory and 

Analysis (FIA) program, which is an increase of $2,142,526 from the FY 2017 Annualized CR funding level.

The FY 2018 budget request proposes the Forest Service to focus on research that supports the management of 

National Forest System (NFS) lands and the agency’s wildland fire suppression efforts. Specific increases and 

decreases across the Strategic Program Areas (SPAs) include:

A decrease of $3,359,000 for the Wildland Fire and Fuels SPA. The FY 2018 budget request proposes $17,838,000 

for air quality research including research on smoke and prescribed fire, managing social dynamics of fire in 
FY 2018 Budget Justification USDA Forest Service

Forest and Rangeland Research 36

wildland-urban interface areas, and wildfire research technology transfer efforts. Additional fire research funding is 

supported by the National Fire Plan Research and Development line within the Wildland Fire Management 

appropriation of $17,600,000.

A decrease of $5,277,000 for the Invasives Species SPA. The FY 2018 budget request proposes $28,274,000 for 

research that provides information and technology needed to reduce or eliminate the spread or impact of invasive 

species. See the “Funding for Selected Insects, Diseases and Invasive Plants by Fiscal Year” table in the Forest 

Health Management Overview for proposed investment levels, by insect, disease, or pathogen.

A decrease of $671,000 for the Recreation SPA. The FY 2018 budget request proposes $3,557,000 for research on 

producing science and technology that natural resource managers can use to offer quality outdoor recreation 

experiences for current and future generations.

A decrease of $13,451,000 for the Resource Management and Use SPA. The FY 2018 budget request proposes 

$75,228,000 for research that provides the scientific and technological base to sustainably manage and use forest 

resources and fiber-based products. 

A decrease of $5,326,000 for the Water, Air, and Soil SPA. The FY 2018 budget request proposes $28,498,000 for 

research that enables the sustainable management of water, air, and soil resources by providing information on how 

forests can support clean air and drinking water through improved resilience.

A decrease of $4,079,000 for the Wildlife and Fish SPA. The FY 2018 budget request proposes $21,849,000 for 

research that provides knowledge and tools to sustain the health, diversity, and productivity of aquatic and terrestrial 

animals on the Nation’s forests and grasslands.

An increase of $716,000 for the Inventory and Monitoring SPA. The FY 2018 budget request proposes $77,000,000 

for the implementation of the Forest Inventory and Analysis (FIA) program, including full implementation of FIA 

sampling in interior Alaska. This funding level allows for a five-year measurement cycle in the East and a 10-year 

measurement cycle in the West. The FY 2018 budget request includes $6,756,000 for the inventory and monitoring 

on the status and trends of the Nation's renewable resources on all forest and rangelands, as required by the Forest 

and Rangeland Renewable Resources Planning Act of 1974.

Program Overview

Forest and Rangeland Research works at the forefront of science to improve the health and use of our Nation's 

forests and grasslands, Forest Service R&D has been part of the Forest Service mission since the agency's inception 

in 1905. Today, more than 500 Forest Service researchers work in a range of biological, physical, and social science 

fields to promote sustainable management of the Nation's diverse forests and rangelands. The work has a steady 

focus on informing policy and land-management decisions, whether it addresses invasive insects, degraded river 

ecosystems, or sustainable ways to harvest forest products. The researchers work independently and with a range of 

partners, including other agencies, academia, nonprofit groups, and industry. The information and technology 

produced through basic and applied science programs is designed to meet stakeholder needs and is available to the 

public for its benefit and use.

Forest Service R&D has a unique authority and mandate to provide new knowledge and technologies to foster 

healthy watersheds, sustainable forest products, wildlife protection, outdoor recreation opportunities, robust urban 

ecosystems, and other benefits, across all Territories and States (including both Federal and non-Federal lands) 

benefiting both rural and urban communities. Forest Service R&D provides scientific information and new 

technology to support sustainable management of the Nation’s forests and rangelands. These products and services 

increase the basic biological, physical, and applied knowledge of the composition, structure, and function of forest, 

rangeland, and aquatic ecosystems. The information provided by the Forest Service R&D provides economic, 

health, and non-monetary environmental benefits to the American public by: 

 protecting lives, property, water and air resources from wildfire;

 providing jobs and economic development through enhanced recreational opportunities; 
FY 2018 Budget Justification USDA Forest Service

Forest and Rangeland Research 37

 creating and maintaining resource utilization job opportunities for rural communities;

 creating and quantifying a wide variety of often non-monetized ecosystem services; and 

 providing critical forest inventory and analysis data that benefit businesses, resources, and people.

Forest Service R&D provides the basic and applied science that bolsters the agency’s efforts to promote resilient 

forests and sustainable communities that can adapt to forest threats such as drought, fire, and insect and disease 

infestations.

Strategic focus of Forest Service R&D on stakeholder needs

The Forest Service R&D focuses on a broad swath of applied research by maintaining programs in all 50 States, 

U.S. territories, and U.S. commonwealths. Forest Service R&D consists of seven research stations and 81

experimental forests and ranges. Forest Service R&D interacts with national forests in nine regions and with the 

agency's State and Private Forestry programs throughout the U.S.

In recent years, Forest Service R&D has intensified strategic actions to ensure the agency is focusing its available 

resources to meet the needs of our stakeholders. In FY 2016, those strategic actions to gauge and respond to 

stakeholder needs included:

 In FY 2016, wildfires continued to be a persistent and critical issue of concern to western States. The Forest 

Service’s three western Research Stations (Rocky Mountain, Pacific Northwest, and Pacific Southwest) 

worked closely to avoid redundancy in the stations’ work focus, and to be responsive to stakeholder needs. 

By closely coordinating on wildfire related applied and basic research, the western stations were able to 

maximize the resources available to meet the needs of western stakeholders for wildfire research and 

development.

 The Southern Research Station (SRS) has been convening meetings with State forestry managers to discuss 

forest management related issues and concerns that SRS can assist them in clarifying, understanding and 

resolving. These ‘State-line’ meetings generally involve multiple States with common issues. Topics span 

the range of research that SRS is involved in, including such current issues in water, forest health, insects 

and disease, genetics in forest restoration, biomass, fire and smoke management, economic and ecological 

values of forest, markets, white-nose syndrome in bats, long leaf pine ecosystem restoration, bottomland 

hardwood ecosystems, and more. To date, the agency has convened seven State-line meetings. 

 Every three years, Forest Service R&D conducts Customer Satisfaction Surveys of the people and groups 

who use our research and information products. The results include a score which allows users to make 

comparisons with the scores of other Federal research and development organizations, and the results 

include feedback on what the agency is doing well and what the agency needs to do to improve. These 

surveys reveal that our products are rated as scientifically sound and are viewed as sources of authority. 

Currently, Forest Service R&D is focusing on providing workable and actionable solutions to questions 

raised by natural resource managers. 

 The Forestry Research Advisory Council (FRAC) is composed of up to 20 members appointed by the 

Secretary of Agriculture and drawn from Federal, State, university, industry, and non-governmental 

organizations. FRAC convenes bi-annually with stakeholders to discuss, prepare and present 

recommendations, and advise the Secretary on regional and national forestry research planning and 

coordination within stakeholders. 

Forest Inventory and Analysis

The FIA program is a congressionally authorized and mandated census of all U.S. forests currently active in all 50 

States. The Forest Service provides the information needed to assess America's forests. As the Nation's foremost 

continuous forest census, the program projects how forests are likely to appear 10 to 50 years from now, providing 

valid information to inform forest management planning across the Nation. The FIA leverages one partner dollar for 

every six Federal dollars spent. The FIA data are considered critical across the Nation for businesses, researchers, 

resource managers, and private citizens for informing restoration and utilization of forest resources. The FIA reports 

on the current conditions and recent trends in the area of public and private forest lands in the U.S. The Forest 

Service R&D focuses on a broad swath of applied research by maintaining programs in all 50 States, U.S. territories, 
FY 2018 Budget Justification USDA Forest Service

Forest and Rangeland Research 38

and U.S. commonwealths. Forest Service R&D consists of seven research stations and 81 experimental forests and 

ranges. Forest Service R&D interacts with national forests in nine regions and with the agency's State and Private 

Forestry programs throughout the U.S.

The FIA provides specific information on past, current, and projected tree numbers by species; the size and health of 

trees; tree growth, mortality, and harvest removals; loss of forested lands due to disturbances, such as hurricanes and 

wildland fires; wood production and utilization; and forest landownership. These continuous and national data 

enable the Forest Service to evaluate whether current forest management practices are sustainable in the long run,

and inform policies that will enable future generation to enjoy America's forests.

The Forest Service has responded to stakeholder needs and significantly enhanced the FIA program by changing 

from a periodic survey to an annual survey; by increasing our capacity to analyze and publish data; and by 

expanding the scope of our data collection to include soil, under story vegetation, tree crown conditions, coarse 

woody debris, and lichen community composition on a subsample of our plots. The FIA program has expanded in 

recent years to include the sampling of urban trees on all land use types in select cities, and sampling in parts of 

interior Alaska.

These FIA data are essential to making sound investment decisions in forest management activities and land 

management planning, ensuring the long-term health of forests, and prolonging the availability of multiple uses from 

forests that create or maintain jobs across the Nation. For example, recent interest in biomass utilization for products 

such as wood pellets has created increased demand for reliable ways to estimate resource availability and 

sustainability. Refinements to an FIA tool used for reconciling existing demand from nearby mills, based on their 

capacity, allows for identification of areas for development of biomass utilization. This methodology has resulted in 

sizeable private sector investments and has helped create more than 300 forest sector jobs. Forest Service R&D also 

works closely with State forestry agencies and other partners to achieve the FIA mission. Recent data show that the 

FIA “Census for Trees” program positions State and public and private landowners to implement and profit from 

alternative energy and ecosystem service markets focused on carbon sequestration and the conversion of woody 

biomass to energy.

Strategic Program Areas and Priority Research Areas

The Forest Service R&D program structure consists of two integrated components: (1) the Strategic Program Areas 

(SPAs), which are the broader long-term programs and (2) the Priority Research Areas (PRAs), which address the 

emerging needs as well as the agency’s priorities (see table). Each PRA contains varying SPA funding levels and 

SPA programmatic focus, as appropriate, to address that PRA within available resources. The SPA, (across the top 

row) represent a cohesive group of activities in PRAs (column on left side of table) as displayed in the rows in the 

table below. 
FY 2018 Budget Justification USDA Forest Service

Forest and Rangeland Research 39

FY 2018 Strategic Program Areas Funding Table

(dollars in thousands)

Priority 

Research Areas

Wildland 

Fire and 

Fuels 

Research

Invasives

Species Recreation

Resource 

Management

and Use

Water, Air, 

and Soil

Wildlife and 

Fish

Inventory 

and 

Monitoring Total

Forest 

Disturbances $234 $158 $0 $12,529 $1,633 $2,563 $4,380 $21,497

Forest Inventory 

and Analysis 0 0 0 0 0 0 77,000 77,000

Watershed 

Mgmt. and 

Restoration

1,495 970 0 2,412 7,898 4,867 737 18,379

Bioenergy and 

Biobased 

Products

194 74 0 9,299 194 0 273 10,034

Urban Natural 

Resource 

Stewardship

370 0 1,688 883 1,120 0 746 4,807

Nanotechnology 0 0 0 3,706 0 0 0 3,706

National Forest 

System Lands

Research

15,545 27,071 1,869 46,400 17,653 14,420 620 123,577

Total $17,838 $28,274 $3,557 $75,228 $28,498 $21,849 $83,756 $259,000

Past Performance

Integrating the Customer Satisfaction Survey into Performance

The Customer Satisfaction Survey provides meaningful input that helps us adjust our performance to better meet the 

needs of our stakeholders. The survey is conducted every three years and measures satisfaction indices on a scale of 

0 (poor) to 100 (excellent). The results help Forest Service R&D achieve its goals by identifying key drivers of 

satisfaction. The most recent survey was conducted in FY 2015, and the next survey is due in FY 2018.

The aggregate satisfaction score in FY 2015 was 76, which is well above the average score for all Federal agencies 

(66) for similar surveys and is above the baseline score for Forest Service R&D in 2006 (72). It does represent a 

three point decline from the FY 2012 survey, however the score is consistent with declines in satisfaction scores 

reported by other agencies. Results from the FY 2015 survey show that the agency scored high (92) in satisfaction 

for courtesy and responsiveness of Forest Service R&D personnel and “Products,” (84) for how well Forest Service 

R&D products met customer expectations. 

“Relevance and quality” is a category that had high potential impact on satisfaction and a relatively low satisfaction 

score (74), indicating this is an area on which to focus for improvement. As a result, Forest Service R&D is working 

to provide more detailed and actionable Customer Satisfaction solutions with their research results. 

Strategic Program Area Past Performance:

Wildland Fire and Fuels Research

Wildland Fire: Nature’s Fuel Treatment – In FY 2016, Forest Service R&D scientists evaluated more than 40 years 

of satellite imagery in wilderness and other areas with low human influence to build a model of expected fire 

activity. What they found suggests that wildfires reduce the probability that subsequent fires will ignite and spread; 

wildfires reduce the size of subsequent fires by acting as fuel breaks, and; the severity of subsequent fires is 

significantly lower in areas that have recently burned compared to areas that have not.
FY 2018 Budget Justification USDA Forest Service

Forest and Rangeland Research 40

These findings are helping land managers to assess whether a 

previous wildland fire will act as a fuel treatment based on the length 

of time since the previous fire occurred, along with local conditions 

such as ecosystem type, topography and fire weather conditions. By 

factoring in the ecological benefits of fire, land managers are able to 

manage fire in a way that fosters more resilient landscapes. See:

http://www.fs.fed.us/rmrs/news-releases/comparing-expectedobserved-area-burned-western-united-states

Improving Fire Fighting and Prescribed Burns – In FY 2016, the 

Prescribed Fire Combustion and Atmospheric Dynamics Research 

Experiment (RxCADRE) produced unprecedented field data on 

prescribed fires, which are controlled burns that reduce hazardous 

fuels in forests. Hazardous fuels are the over-accumulation of 

vegetation on NFS lands, such as grass, plants, shrubs, and trees that 

feed a fire. RxCADRE is helping improve modelled predictions of 

fire and smoke behavior that support decision-making to fight 

wildland fires and reduce the air quality impacts of prescribed burns. 

See: http://www.fs.fed.us/rmrs/projects/rxcadre-prescribed-fire-combustion-and-atmospheric-dynamics-researchexperiment-0

Inventory and Monitoring

Forest Service Research Improves Road Management and 

Influences National Policy – In FY 2016, Forest Service 

researchers collaborated with partners to develop analytic tools

that identify specific areas where water drains off forest roads 

and carries unwanted sediment into waterways. These tools, 

Geomorphic Road Analysis and Inventory Package (GRAIP) 

and GRAIP-Lite, informed new Environmental Protection 

Agency policy decisions. 

Partnering with Wisconsin’s Department of Natural Resources -

In FY 2016, Wisconsin’s Department of Natural Resources 

(DNR) found FIA data to be so important to help sustainably 

manage Wisconsin’s forests that DNR has been partnering with 

the Forest Service to double the number of State plots measured 

annually, including urban areas. This data which never 

previously existed will empower urban forest managers to make 

more informed decisions about managing the urban forests of 

Wisconsin, and eventually the Nation. While still sticking with 

FIA core measurements, FIA metrics have grown into areas that 

are increasingly important to DNR stakeholders such as estimating forest biomass, forest regeneration, and invasive 

species. 

Applied Research on Prescribed 

Burning

A Forest Service scientist is preparing a video 

camera prior to ignition of one of the large 

grass-shrub burn plots at Eglin Air Force 

Base, on the Florida panhandle.

Geomorphic Road Analysis & Inventory 

Package

GRAIP-Lite is a new GIS-tool that provides general 

estimates of erosion from forest roads across the 

nation.
FY 2018 Budget Justification USDA Forest Service

Forest and Rangeland Research 41

Working to Prevent Endangered or Threatened listing of species

Supporting Resilience of Sagebrush Ecosystems – Research found

that improving sagebrush habitat significantly reduced threats to the 

greater sage-grouse across 90 percent of the species’ breeding 

habitat. Plant genetic analysis by Forest Service R&D scientists 

revealed critical steps in effective restoration. This research focused

on ecological genetics of sagebrush, which is under threat 

principally from wildfire and exotic weed encroachment. Research 

by Forest Serviced R&D scientists is also supporting a wide 

breadth of conservation efforts that are underway across the 

western U.S. to reduce threats to greater sage-grouse and the 

sagebrush ecosystems on which they depend. See:

http://www.fs.fed.us/rmrs/science-spotlights/science-basedguidelines-restoration-and-conservation-sagebrush-ecosystems

Working to Optimize Biodiversity Corridors - Under the pressures 

of both rapid human development and drought, wildlife habitat has 

diminished and become fragmented, at times compromising the 

ability of many species to survey. As the human population grows 

and expands its footprint, maintaining the connectivity of animal 

habitat is a challenge. Habitat corridors are critical for keeping 

wildlife species connected across the landscape. A new 

optimization technique recently developed by the Forest Service and partners will now help conservation biologists 

choose the most cost-effective ways of connecting isolated populations of rare, threatened and endangered species 

living in protected areas. http://www.fs.fed.us/rmrs/news-releases/optimization-technique-identifies-cost-effectivebiodiversity-corridors

Water Quality and Quantity

Protecting the Water Supply of Contiguous U.S. - This FY 2016 study estimated water supply across the contiguous 

48 States for the period 1981-2010. Political, administrative, and land cover boundaries were mapped over the 

gridded water supply estimates to indicate the amount of water available in respective land areas. The study shows 

that forests provide 46 percent of the mean annual water supply for the contiguous U.S. These new estimates 

incorporate more recent precipitation and temperature data, apply a different water yield model, and utilize newer 

land cover data. 

Best Management Practices Improve Water Quality and Save Money – In FY 2016, Forest Service scientists 

pioneered the first national program to strengthen implementation and monitoring of best management practices 

(BMP) used to protect water quality from the diverse range of ground disturbing and management activities that 

occur on National Forest System lands. The national BMP monitoring protocols provide consistency for evaluating 

BMP implementation and effectiveness across all units, which in turn allows the Forest Service, for the first time 

ever, to report national performance results to regulatory agencies, States, Tribes, other stakeholders, and the public.

Sage Grouse Habitat

In partnership with BLM and the Western 

Association of Fish and Wildlife Agencies 

(WAFWA), Forest Service R&D has provided 

the “resistance and resilience” science for 

management of sagebrush ecosystems. This 

approach allows us to determine where greater 

sage-grouse (Centrocercus urophasianus) are 

most likely to persist, and where management 

actions, particularly restoration, are most likely 

to succeed (Humboldt National Forest).
FY 2018 Budget Justification USDA Forest Service

Forest and Rangeland Research 42

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FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 43

State and Private Forestry

Appropriation State and Private Forestry

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

State and Private Forestry

Annual Appropriations $237,023 $236,573 $118,010 -$118,563 -50%

State and Private Forestry Total 237,023 236,573 118,010 -118,563 -50%

Annual Appropriation FTEs 554 554 435 -118 -21%

Total Full-Time Equivalents (FTEs) 554 554 435 -118 -21%

State and Private Forestry

Landscape Scale Restoration 14,000 13,973 0 -13,973 -100%

Forest Health Management - Federal Lands 58,922 58,810 54,205 -4,605 -8%

Forest Health Management - Cooperative Lands 40,678 40,601 36,185 -4,416 -11%

Forest Stewardship 23,036 22,992 20,500 -2,492 -11%

Forest Legacy Program 62,347 62,229 0 -62,229 -100%

Community Forest and Open Space Conservation 2,000 1,996 0 -1,996 -100%

Urban and Community Forestry 28,040 27,987 0 -27,987 -100%

International Forestry 8,000 7,985 7,120 -865 -11%

State and Private Forestry Overview

The FY 2018 President’s Budget proposes $118,010,000 for State and Private Forestry, a decrease of $118,563,000 

from the FY 2017 Annualized CR (including $274,000 for annualization of the 2017 pay increase and $375,000 for 

the 2018 pay increase), and a decrease of 118 staff years ($236,573,000 and 554 staff years available in 2017).

The State and Private Forestry (SPF) programs help sustain the Nation’s rural forests, assist private landowners, and 

protect the environment from insects, disease, and invasive plants. More than 50 percent of our Nation’s forests;

approximately 445 million acres, are privately owned. These forests supply almost 30 percent of the surface 

drinking water to cities and rural communities, and over 90 percent of our domestically-produced forest products. 

The SPF programs help protect these forests and provide support to keep working forests intact. This Federal 

investment leverages the capacity of State Foresters and their partners to manage State and private lands and 

produce ecological, social, and economic benefits for the American people. For example, as a result of SPF program 

investments, more than 25.8 million acres are now being managed more sustainably because of landowner planning, 

have been treated to protect against wildfires and insects and diseases, or have been protected from development. 

Partnerships are critical in implementing and delivering SPF programs. Through a coordinated effort in 

management, protection, conservation education, and resource use, SPF 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. This requests adjusts the role of the Federal government within this 

coordinated effort.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 44

Landscape Scale Restoration

Budget Line Item Landscape Scale Restoration

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Landscape Scale Restoration

Annual Appropriations $14,000 $13,973 0 -$13,973 -100%

Landscape Scale Restoration Total 14,000 13,973 0 -13,973 -100%

Annual Appropriations FTEs 0 0 0 0 0%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Landscape Scale Restoration

Total value of resources (expressed as a ratio) leveraged through 

partnerships with states and other partners 1.1 1.3 0.0

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget does not propose funding for the Landscape Scale Restoration program, a decrease 

of $13,973,000 from the FY 2017 Annualized CR. In FY 2018, the Forest Service’s focus will be on the 

maintenance of the existing National Forest System lands. 

Program Overview

The Landscape Scale Restoration (LSR) program was established in FY 2014 to enable States to pursue landscape 

scale projects that focus on priorities identified in their State Forest Action Plans. 

Past Performance

In FY 2016, the Forest Service competitively allocated $11.6 million for 46 projects in 32 States, Territories, and the 

District of Columbia. The agency leveraged over $13 million in partner dollars and in-kind contributions. Of these 

projects, 41 contributed to active and sustainable forest management; almost 40 mitigated threats to forest health; 

and 46 improved air quality, provided economic benefits, enhanced and protected water quality, or helped forests 

mitigate or adapt to changing conditions. 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 45

Forest Health Management

Forest Health Management

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Health Management

Annual Appropriations $99,600 $99,411 $90,390 -$9,021 -9%

Forest Health Management Total 99,600 99,411 90,390 -9,021 -9%

Annual Appropriation FTEs 382 382 350 -32 -8%

Total Full-Time Equivalents (FTEs) 382 382 350 -32 -8%

Forest Health Management

Forest Health Management - Federal Lands 58,922 58,810 54,205 -4,605 -8%

Forest Health Management - Cooperative Lands 40,678 40,601 36,185 -4,416 -11%

Forest Health Management Overview 

The FY 2018 President’s Budget proposes $90,390,000 for Forest Health Management, a decrease of $9,021,000 

from the FY 2017 Annualized CR.

The Forest Health Management (FHM) program provides insect, disease, and invasive plant survey and monitoring 

information on forest health conditions on Federal and non-Federal (Cooperative) lands, and provides technical and 

financial assistance to prevent, suppress, and control outbreaks threatening forest resources and watershed 

conditions. FHM uses analytical data from surveys, monitoring, and applied research to direct active land 

management treatments. The agency transfers technology to assist customers and partners to restore and manage 

healthy forest landscapes across State, private, Tribal, and Federal lands, including both urban and rural forests. 

Because of the expertise required to carry out this work and land treatment activities, this program also creates 

private sector jobs. 

Federal Lands: Activities are carried out on National Forest System lands, and on other Federal lands in cooperation 

with other departments, such as the Department of the Interior, with USDA agencies such as the Animal and Plant 

Health Inspection Service (APHIS), the National Resources Conservation Service (NRCS), and with Tribal 

governments. Pests and diseases affect forests across all lands, so these activities are coordinated to prevent, detect, 

monitor, evaluate, and suppress insects and disease, reduce wildfire risks, and improve forest health. 

Cooperative Lands: Activities on cooperative lands are carried out in cooperation with States and Territories in a 

coordinated program to maintain and restore forestlands damaged by insects, disease, and invasive plants. These are 

lands owned by States, local governments, private organizations, and individual landowners.

The Forest Service continues to commit resources to address public safety and forest health needs arising from 

millions of acres of dead and dying trees from bark beetle infestations. In FY 2018, the Forest Service will continue 

management actions on forests affected by beetle outbreaks through multiple funding sources, including FHM. In 

coordination with partners and stakeholders, the Forest Service will direct funds to high-priority areas experiencing 

tree mortality as a result of bark beetle infestations to reduce the impacts of the infestation, and to more aggressively 

focus our efforts to promote public safety, forest recovery, and resiliency. 

The FHM program will continue to treat prioritized areas to reduce the potential for new outbreaks; protect these 

areas from damaging insects, diseases, and invasive plants; and reduce the risks of undesired mortality from 

wildfire. Insect/Disease funding is based primarily on current pest locations and populations detected through 

surveys, and level of risk as identified in the National Insect and Disease Risk Map (NIDRM), a tool developed by 

Forest Service researchers and scientists to predict how forests will be affected over time. NIDRM is a predictive 

tool modeled to 2027, and is used extensively by Federal and non-Federal forest managers, as well as academia. 

Invasive plant funding is based on State and regional priorities. Cost effectiveness and probability of successful 

implementation of treatments are taken into consideration. Treatments are integrated with other Forest Service 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 46

activities, such as hazardous fuels, forest management and watershed restoration, and maintenance activities to most 

efficiently restore resilience to key landscapes.

Assessing Conditions 

Current conditions of mortality and defoliation (stripping of leaves or foliage) are monitored every year by extensive 

nationally standardized aerial and ground surveys conducted on over 400 million acres of forestlands. These surveys 

are an integral part of the FHM program because they provide rapid and early detection of forest pests. Surveys

provide key information to forest managers, helping to best target treatments on impacted lands. For example, 

addressing the bark beetle infestation in areas of the West resulted in reduced infestation impacts and spawned 

collaborative State, Federal, and private activities; monitoring and treatment activity of the gypsy moth in the east 

has slowed the spread of this insect from entering into important oak forests which hold high natural resource value 

and are economically important; and in the south, tracking activity levels as well as conducting ongoing treatments 

to manage southern pine beetle outbreaks. 

Emerging Threats

FHM will continue to assess and evaluate forests across the country. In partnership with States, the agency focuses 

on identifying and documenting damage caused by forest insects, tree diseases, and invasive plants; changes in the 

population dynamics of host preferences of pests; and other changes in pest activity caused by environmental and 

other disturbance conditions. FHM works collaboratively with other Federal agencies, especially with the USDA’s 

APHIS to combat several damaging invasive pests (such as emerald ash borer and Asian longhorned beetle), and 

invasive plants. Most of the partnership work includes surveys and monitoring, suppression, control, and eradication 

treatments, developing novel methods for combating pests – including biocontrols and education/outreach with the 

public.

Planned FY 2018 activities to address these emerging threats include the following highlights: 

Several species of western bark beetle are causing severe mortality across Western States, especially in California, 

increasing risks for catastrophic fire, and for the health and safety of the people who use America’s forests. FHM 

will continue to focus its resources on prevention, suppression, and public safety -- especially in high value sites 

such as campgrounds and administrative sites -- in coordination with other Federal land managers.

Southern pine beetle has historically been the most destructive forest pest in the South. Infestations have now been 

found in New Jersey and New York. The Forest Service is working closely with State and Federal partners to detect 

and manage these outbreaks. Since 2004, the Forest Service has implemented the Southern Pine Beetle Prevention 

Program, which supports forest management activities reducing southern pine beetle risk. Over a million acres have 

been treated to reduce the risk of southern pine beetle infestations on State, private, and Federal lands across the 

South. This program continues to be an example of Forest Service leadership and successful cooperation across alllands.

Hemlock woolly adelgid remains a significant threat to hemlock forests in the Eastern U.S. The Forest Service uses 

a multi-partner strategy to address this non-native insect on private, State, and Federal lands. This integrated effort 

focuses on management of high value hemlocks (using biological and chemical controls), research, and methods 

development. 

The following table displays funding levels for selected insects, diseases, and invasive plants for FY 2016 to FY 

2018. The funding strategy is based in large part on findings from the current surveys of pest conditions, NIDRM, 

and priorities in the State Forest Action Plans.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 47

Funding for Selected Insects, Diseases and Invasive Plants by Fiscal Year

(dollars in thousands)

RD - (Research Appropriation)

SPF – (State and Private Forestry, Forest Health 

Appropriation)

FY 2016

Enacted

FY 2017

Annualized

CR

FY 2018

Estimates

Asian Longhorned Beetle (Total) $161 $159 $143

 SPF 47 45 47

 RD 114 114 96

Douglas-fir Tussock Moth (Total) 96 45 42

 SPF 25 25 25

 RD 71 20 17

Emerald Ash Borer (Total) 389 391 392

 SPF 240 240 240

 RD 149 151 152

Gold Spotted Oak Borer, Thousand Canker Disease, Laurel 

Wilt (Total) 1,449 1,423 1,317

 SPF 587 561 587

 RD 862 862 730

Gypsy Moth (Total) 10,933 9,905 10,265

 SPF 9,979 9,465 9,979

 RD 954 440 286

Hemlock Woolly Adelgid (Total) 2,722 2,666 2,583

 SPF 1,770 1,770 1,770

 RD 952 896 813

Invasive Plants (Total) 2,812 2,888 2,638

 SPF 1,678 1,825 1,678

 RD 1,134 1,063 960

Oak Wilt (Total) 540 574 528

 SPF 466 500 466

 RD 74 74 62

Port Orford Cedar Root Disease - S&PF (Total) 187 223 187

 SPF 187 223 187

 RD 0 0 0

Sirex Woodwasp (Total) 404 370 301

 SPF 90 90 90

 RD 314 280 211

Southern Pine Beetle (Total) 3,623 3,653 3,552

 SPF 3,170 3,200 3,170

 RD 453 453 382

Subterranean Termites - R&D (Total) 1,553 1,203 844

 SPF N/A N/A N/A

 RD 1,553 1,203 844
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 48

RD - (Research Appropriation)

SPF – (State and Private Forestry, Forest Health 

Appropriation)

FY 2016

Enacted

FY 2017

Annualized

CR

FY 2018

Estimates

Sudden Oak Death (Total) 1,698 1,789 1,647

 SPF 1,407 1,500 1,407

 RD 291 289 240

Western Bark Beetles (Total) 4,668 4,609 4,534

 SPF 4,103 4,103 4,103

 RD 565 506 431

Whitebark Pine Pests - (Total) 117 125 117

 SPF 117 125 117

 RD 0 0 0

White Pine Blister Rust (Total) 776 681 655

 SPF 420 425 420

 RD 356 256 235

Total Funding $32,128 $30,704 $29,745

 SPF $24,286 $24,097 $24,286

 RD $7,842 $6,607 $5,459
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 49

Forest Health Management – Federal Lands

Budget Line Item Forest Health Management - Federal Lands

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Health Management - Federal Lands

Annual Appropriations $58,922 $58,810 $54,205 -$4,605 -8%

Forest Health Management - Federal Lands Total 58,922 58,810 54,205 -4,605 -8%

Annual Appropriations FTEs 296 296 273 -23 -8%

Total Full-Time Equivalents (FTEs) 296 296 273 -23 -8%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Forest Health Management - Federal Lands

Federal acres treated - Invasives 175,877 88,688 80,000

Federal acres treated - Native pests 216,691 152,146 136,000

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $54,205,000 for the Forest Health Management – Federal Lands 

program, a net decrease of $4,605,000 from the FY 2017 Annualized CR (including $172,000 for annualization of 

the 2017 pay increase and $235,000 for 2018 pay increase) and a decrease of 23 staff years ($58,810,000 and 296 

staff years available in 2017). 

A decrease of $4,605,000 in funding for international projects, and survey and technical assistance. The agency will 

continue to focus on the most pressing needs of forest restoration and reducing communities’ risk to catastrophic 

fire.

Program Overview

Pests cause billions of dollars in damage to trees and other forest resources each year, resulting in reduced 

productivity, loss of recreation opportunities, and the creation of safety hazards in the Nation’s forested lands. The 

Forest Health Management-Federal Lands (FHM—Federal Lands) program supports efforts to detect, prevent, 

suppress, and to monitor and evaluate forest insects and diseases to protect forest lands managed by the Forest 

Service and other Federal agencies. In addition to providing financial support, the agency provides technical 

assistance and methods development to Forest Service staffs and other Federal agencies to assist in appropriate and 

timely responses to protect the Nation’s forests from insects and diseases. 

The agency employs an all-lands approach to forest health issues because forests cross jurisdictional boundaries. 

Just as pests do not distinguish among different ownerships, some methods of pest management allow practitioners 

to affect entire landscapes, treating both public and private lands in an ecologically responsible and economically 

effective manner.

Currently, the major pests the agency manages include sudden oak death, white pine blister rust, bark beetles, gypsy 

moth, hemlock woolly adelgid, oak wilt, and southern pine beetle. Since pests cross administrative boundaries, the 

agency collaborates with our partners in an all-lands approach to develop integrated management strategies that 

address each important pest. To use our funding most efficiently, the agency treats the highest priority areas 

identified by aerial and ground surveys and the National Insect and Disease Risk Map (NIDRM) in coordination 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 50

with State Forest Action Plans. 

The treatments protect 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. Insect and disease pests include native and 

non-native invasives. Insects and pathogens native to North America may develop into outbreaks when 

environmental and host conditions favor their buildup. Non-native invasive insect and disease pests introduced from 

other countries result in significant damage to host species when there is little or no resistance from the host. Both 

native and non-native invasive pests can cause significant damage and tree mortality when populations are high; and 

this is usually a result of the availability of hosts, biology of the pest, and environmental factors. Drought can play a 

significant role in tree stress. Combined with bark beetle infestations, dead trees are having significant effects on the 

people who live, work, and/or visit affected areas across the west. Currently, the most visible and concerning result 

of invasive beetles are the high number of hazardous dead and dying trees in and around communities and 

campgrounds and along roads, trails, and power lines. The agency expects these trees to continue dying until 

precipitation returns to and remains normal (or above) for one to two years.

The Forest Service also works to conserve at-risk tree species using gene conservation efforts that will support other 

FHM-Federal Lands projects on lands negatively impacted by the effects of insects and diseases.

The program continues to fund the Eastern Forest Environmental Threat Assessment Center in Asheville, North 

Carolina, and the Western Wildland Environmental Threat Assessment Center in Prineville, Oregon, and provides 

information on how multiple threats interact with pests. Other agency programs like State and Private Forestry, 

National Forest System (NFS), and Forest Service Research and Development also support the Environmental 

Threat Assessment Centers.

Past Performance

FHM-Federal Lands program provides technical and financial assistance to other Forest Service programs and other 

Federal agencies. The Forest Health staff provides technical assistance to the Department of the Interior agencies, 

Department of Defense facilities and Service academies to detect and identify forest insect and diseases, and make 

recommendations on management options. The agency also provides advice to Tribes to detect, monitor, and 

manage insects and diseases on Tribal lands. When Tribes identify infestations that require treatments, the agency

provides financial assistance. Of the approximately $1.8 million dollars the agency provided in FY 2016, over 

$600,000 went to Tribes to treat more than 25,000 acres.

Sudden oak death

The Forest Service is taking a cooperative approach to reduce the impact of sudden oak death in the western United 

States. Sudden oak death is a devastating, fast-moving disease that affects native oaks and related species, killing 

trees and disrupting ecosystems. The agency works with our Federal and Tribal partners, such as the Redwood 

National Park and Hoopa and Karuk Tribes, to monitor and develop techniques to combat this disease. In FY 2016, 

the agency worked with our partners to remove infected trees on National Park Service (NPS) and Bureau of Land 

Management (BLM) lands, reducing the chances that sudden oak death will infest neighboring trees and landscapes. 

The agency also increased homeowner awareness of this disease through an education campaign conducted with the 

Bureau of Indian Affairs, the BLM, and the NPS.

This invasive pathogen will have a significant impact if it spreads beyond the known infestation areas in California 

and Oregon. The loss of oak would adversely affect ecosystem functions such as water quality, biodiversity, and 

forest structure, as well as the hardwood markets. Sudden oak death infestation merits treatment, removal, and 

replacement of thousands of oak trees in affected communities at an estimated cost of $7.5 million annually. Experts 

project losses in residential values for California homeowners at $135 million between 2010 and 2020. 

White pine blister rust

High elevation white pines are among the oldest tree species in western North America, unique for their ability to 

live and thrive in extreme mountain conditions. White pines are extremely important as they are a critical food 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 51

source for bears, Clark’s nutcracker, and other wildlife; they maintain slope stability in steep areas; and are 

culturally important to many Native people. White pine blister rust was initially found in the 1930s causing 

significant damage and mortality to white pines. As these pines decline, the diversity of plant and wildlife species 

that depend on them will be impacted and sites that once contained these trees may erode and snow retention will 

decrease. Widespread mortality could impact tourist economies – for example, over 100,000 people per year pay an 

entrance fee in Colorado to visit an ancient bristlecone pine forest that is vulnerable to this disease. 

The agency continues to work with our partners in the National Forest System Forest Management Program to 

identify individual trees that withstood the onset of white pine blister rust. The agency now recognizes this as 

genetic resistance to the disease, and know that restoration of white pine in high-elevation forests depends on our 

ability to collect and maintain the genetic seed stock of these surviving trees. However, recent increases in bark 

beetle activity in the West have put all high elevation pines, including white pines, at increased risk of mortality. 

Application of management techniques to reduce the impact of the beetle has allowed managers to protect the 

genetic resource of the resistant trees and ensure the future survival of white pines. In FY 2016, the agency protected 

high value trees by applying protective sprays and using pheromones (chemicals naturally released by insects) to 

disrupt beetle activity.

Spruce beetle

A spruce beetle outbreak in southern Colorado is rapidly expanding in high elevation spruce-fir forests, and acres 

impacted have nearly doubled in the past few years. The agency is working with National Forest System (NFS) to 

address this outbreak in high value areas. Actions have been taken to enhance safety on public lands close to the 

wildland-urban interface, and in FY 2016 the agency focused on removing hazardous trees, especially in highly used 

areas like campgrounds. Efforts are also underway to reforest and diversify the affected landscape.

Southern pine beetle

Programs designed to control southern pine beetle 

populations focus on the fact that well-managed stands are 

much less prone to attack. Southern pine beetles are native 

to these pine forests, but beetle activity can sometimes 

disrupt forests by killing significant numbers of mature 

trees. Thinning of susceptible landscapes and diversifying 

conditions throughout the forest are proven techniques that 

reduce southern pine beetle activity. 

The agency continued this strategy in FY 2016, and found 

the tactics even more effective when conducted over large 

landscapes. These efforts have resulted in cross-boundary 

efforts that have reduced southern pine beetle numbers to 

their lowest levels in decades.

Asia-Pacific Forest Invasive Species Network

The polyphagous shot hole borer, and the associated 

pathogen fusarium (known as “PSHB-FD”), were linked to 

tree injury and mortality in 2012 in Los Angeles County,

although it was first detected in California in 2002. Since 

2012, the PSHB-FD has spread to five counties in southern 

California, and has injured or killed several native, 

ornamental, and agriculturally important tree species. 

Because this pest has caused similar damage in Vietnam, 

China, and Israel, the agency formed partnerships with

counterparts under the Asia-Pacific Forest Invasive Species Network.

Southern Pine Beetle Prevention in Mississippi

These pine forests in Mississippi were thinned in the 

area marked “1” in 2011. Area marked (2) was not 

thinned This photo from 2012 illustrates the devastation 

that southern pine beetle can cause and the effectiveness 

thinning treatments can have to maintain native forests. 

Photo credit: Forest Service
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 52

This issue-focused partnership aims to identify effective management options for this destructive pest. The agency

implemented initial studies in FY 2015, and plan to continue for three years. In FY 2016, the work advanced and 

expanded to other countries including the Philippines and Samoa. This cooperative study confirmed that the PSHBFD living in California, China, and Vietnam originated from the same source, which will help in developing 

methods to combat the disease.

Performance tracking

The FHM-Federal Lands program upgraded its Forest Health Accomplishment Database (FAD) to include spatial 

mapping, and to integrate data and reports from other State and Private Forestry programs. The upgrade helps track 

accomplishments and link with other datasets so the agency can better articulate the contributions the program 

makes toward maintaining healthy functioning forests.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 53

Forest Health Management – Cooperative Lands

Budget Line Item Forest Health Management - Cooperative Lands

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Health Management - Cooperative Lands

Annual Appropriations $40,678 $40,601 $36,185 -$4,416 -11%

Forest Health Management - Cooperative Lands Total 40,678 40,601 36,185 -4,416 -11%

Annual Appropriations FTEs 86 86 77 -9 -10%

Total Full-Time Equivalents (FTEs) 86 86 77 -9 -10%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Forest Health Management - Cooperative Lands

Cooperative lands acres treated - Invasives 624,699 391,893 352,200

Cooperative lands acres treated - Native pests 27,980 42,115 37,900

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $36,185,000 for the Forest Health Management – Cooperative Lands 

program, a net decrease of $4,416,000 from the FY 2017 Annualized CR (including $49,000 for annualization of the 

2017 pay increase and $66,000 for 2018 pay increase) and a decrease of 9 staff years ($40,601,000 and 86 staff 

years available in 2017).

The Forest Service will continue to focus on pest and pathogen activity on State and private lands that threaten 

nearby national forests and grasslands.

Program Overview

Forest insects and pathogens impact forests on all lands and all ownerships. An increase of pest and pathogen 

activity on State and private lands threatens the integrity of near-by and adjacent Federal forest lands.

The Forest Health Management (FHM) Cooperative Lands program provides technical and financial assistance to 

States, the District of Columbia, U.S. Territories, and Freely Associated States to monitor, assess, and mitigate forest 

health threats on non-Federal lands. Financial assistance is usually provided on a 1:1 cost-sharing basis. Treatments 

protect priority areas 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. The program also funds the use of Early Detection and Rapid Response efforts to detect invasive 

insects and diseases, thereby reducing future costs to address pest outbreaks.9

The FHM program funds support three objectives: conducting pest surveys and providing technical assistance; 

conducting prevention, suppression, restoration, and eradication projects; and monitoring the health of the Nation’s 

forests. The Forest Service uses aerial and ground surveys and the National Insect and Disease Risk Map to select 

project locations for funding non-Federal partners. The State Forest Action Plans help guide our activities on nonFederal lands. Treatment placements incorporate local priorities including priority landscapes such as wildland-

 

9Rabaglia, Robert, Donald Duerr, Robert Acciavatti, and Iral Ragenovich. Early Detection and Rapid Response for Non-Native Bark and Ambrosia Beetles 

(2008) USDA Forest Service. 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 54

urban interface areas, municipal water supply areas, outdoor recreational sites, and administrative sites. 

The Forest Service provides essential support to its non-Federal partners is to protect America’s forested lands from 

pests. States identified forest health challenges as one of the most common problems requiring attention in their 

State Forest Action Plans, but States and Territories often lack the scientific or financial resources to address these 

issues. A 2011 study found that non-native invasive forest insects annually 

cost local governments an average of more than $2 billion, while associated 

residential property value losses average $1.5 billion.10 This program helps 

reduce these negative impacts and associated costs. As discussed in the gypsy 

moth section below, investments in the Forest Service Slow-the-Spread gypsy 

moth program yield a benefit to cost ratio of more than 3 to 1.11 Without 

Slow-the-Spread, gypsy moth would affect an estimated 50 million additional 

acres, causing much greater impacts and higher future treatment costs.

The FHM-Cooperative Lands program addresses insects and pathogens on Federal, State, and Tribal lands because 

these pests adversely affect all forests, regardless of ownership. The agency provides technical and financial 

assistance to State partners to address needs and issues identified in State Forest Action Plans, pest detection 

surveys, and areas at risk for infestations. The agency supports treatment area identification and prioritization 

through efforts such as the National Insect and Disease Risk Map, a science-based administrative planning tool that 

provides a nationwide strategic assessment of insect- and disease-caused hazard tree mortality. This suite of 

information includes items like action plans, surveys, and risk maps that help State partners to prioritize and 

prescribe treatments before pest populations reach damaging levels.

Past Performance

The Forest Service collaborated with States and other non-Federal partners in FY 2016 to treat State and private 

lands, accomplishing treatment of non-native invasive pests on 624,619 acres and native pest species on 27,980 

acres. Of the dozens of programs and projects funded through the program, the following projects highlight 

sustained, successful efforts to combat invasive pests that threaten public, State, and private lands. 

Partnership and Technical Assistance

The FHM-Cooperative Lands program and partners provide hundreds of thousands of hours of technical assistance 

to State agencies and the public, primarily through State forestry or agricultural agencies. This technical assistance 

includes site visits, phone consultations, workshop and conference participation, and development of tools and 

methods to respond to insect and disease problems. For example, State forestry agencies in New England are 

providing technical assistance to private landowners to assess pathological conditions of white pine trees and 

provide management guidelines to ensure sustained and healthy pine stands throughout the region. White pine is a 

crucial ecological, economic, and social component of New England forests and several tree diseases threaten the 

benefits provided by this species. The Forest Service and university scientists work cooperatively to transfer new 

technologies to State partners. This stakeholder association led to a multi-State project funded by the USDA 

National Institute of Food and Agriculture, entitled Eastern White Pine Health and Responses to Environmental 

Changes. This project will assess future losses associated with white pine health issues and make management 

recommendations to improve white pine health and productivity.

Southern Pine Beetle

The Southern Pine Beetle Prevention program is a good example of an all-lands strategy that encourages forest 

management practices that prevent outbreaks through cooperation among State and Federal partners. This program 

has treated more than one million acres of forests across the southeastern United States to improve resistance against 

these native insects that kill mature pine trees of all species. Thinning these forests in FY 2016 to stimulate 

 

10 Aukema, JE, Leung B, Kovacs K, Chivers C, Britton KO, Englin, J, Frankel, S, Height, RG, Holmes, TP, Liebhold, AM, McCullough DG, Van Holle, B. 

(2011) Economic Impacts of Non-Native Forest Insects in the Continental United States. PLOS ONE 6(9): e24587. doi:10.1371/journal.pone.0024587.

11 Sills, Erin 2008. Assessment of the Economic Feasibility of the Gypsy Moth Slow the Spread Project. Final Report to USDA Forest Service State and

Private Forestry Grant #NC-06-DG-11244225-337. 72 pp.

The support the Forest Service 

provides to its non-Federal 

partners is essential to 

protecting America’s forested 

lands from pests.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 55

resilience reduced beetles to little activity, and the forests remain able to produce important benefits like clean air 

and water, wildlife habitat, forest products, and recreational opportunities. When outbreaks of this insect do occur, 

the agency works closely with partners to suppress the infestation and minimize impacts. For example, in 2015,

Long Island, New York experienced its first recorded southern pine beetle outbreak. The Forest Service provided 

technical and financial assistance to State cooperators, U.S. Fish and Wildlife Service, and the NPS to stop the 

infestation from spreading onto additional State, private, and Federal lands. While Federal funding has sponsored 

these treatments, a portion of these funds have been used to educate adjacent landowners on the benefits of 

management treatments, because cooperation of all landowners is vital to ensuring the overall program success. In 

FY 2018, the Forest Service will continue this effective program.

Gypsy Moth

The Slow-the-Spread (STS) program is another proactive, long-term strategy through which the agency work with 

State and Federal partners across the landscape to reduce the impacts the gypsy moth, one of North America’s most 

devastating forest pests. Since its inception in 2000, the STS program has prevented the gypsy moth from spreading 

from the infested area that is north and east of North Carolina to Minnesota into 50 million acres of oak forests to 

the south and west. The STS program has reduced the spread of this destructive pest to three miles per year. At this 

rate, the STS measures will prevent infestation of more than 150 million acres over the next 20 years, saving 

extensive urban and wildland hardwood forests in the south and upper mid-west. The program unifies partners and 

promotes coordinated region-wide actions based on biological need. The STS program yields a benefit-to-cost ratio 

of more than 3 to 1 by delaying the onset of impacts that occur as gypsy moths invade new areas. In FY 2016, STS 

treated more than 400,000 acres in eight States to keep the gypsy moth infestations contained and to minimize 

further spread. 

Hemlock Woolly Adelgid

In cooperation with State foresters, the Forest Service implemented a national hemlock woolly adelgid (HWA) 

initiative that focuses on expanded management and technology development. HWA remains the single greatest 

threat to the health and sustainability of hemlock as a forest resource in the eastern U.S. This non-native pest has 

impacts comparable to those of the gypsy moth, Dutch elm disease, and chestnut blight. It has the potential to 

remove hemlock, a major ecological component that is important for maintaining clean water and supporting 

wildlife, from Eastern forests. This aphid-like insect has changed forest structure, created openings for invasive 

plants to gain a foothold, and has caused cascading effects on species makeup and dynamics. Large openings in the 

forests resulting from HWA have changed hydrologic characteristics of watersheds, and increased stream 

temperatures in many eastern forests where hemlock once was dominant. Through a cooperative strategy with 

universities, States, conservation organizations, National Forests, and other Federal agencies, the Forest Service is 

reducing damage caused by HWA within the 19 affected States. 

Sudden Oak Death

With Forest Service funding, non-Federal land managers have treated infested areas of several tree species in 

California and Oregon to contain the sudden oak death outbreak and slow its spread. First discovered in Germany 

and central California in the early 1990s, the disease has devastating effects on U.S. Pacific coast forests, resulting 

in widespread mortality. Since host plants include a broad range of ornamental species, nurseries continually 

struggle with accidental introductions, compounding the risk of establishment in vulnerable oak ecosystems. 

Strategies for slowing the spread of this invasive plant pathogen in these coastal areas involve working closely with 

State forestry agencies. In 2016, the Forest Service and State partners continued a National Stream Baiting strategy 

in the eastern United States to detect the presence of the pathogen that causes sudden oak death. The Forest Service

continues to support Tribes and industry who want to eliminate sudden oak death because of its potential to affect 

natural heritage sites and timber production. The USDA Animal and Plant Health Inspection Service regulates the 

sudden oak death pathogen, and areas with known introductions are subject to quarantine.

Invasive Plants

The agency provides matching funds and technical assistance to regional cooperative weed management 

organizations to combat economically significant invasive plant threats to forestlands. Invasive plants are non-native 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 56

species that aggressively compete with and displace native plant communities in ecosystems across the Nation. 

Invasive plants can cause loss and destruction of forage and habitat for wildlife, reductions in available grazing land, 

lost forest productivity, reduced groundwater levels, soil degradation, and an increased threat of devastating 

wildfires. Invasive plants can also reduce land values and diminish recreational enjoyment. The agency targets

numerous widespread species, including rush skeletonweed, mile-a-minute weed, leafy spurge, yellow star thistle, 

giant hogweed, cheatgrass, spotted knapweed, saltcedar, scotch broom, buffelgrass, and musk thistle. In the South, 

this program has funded treatments to combat the invasive cogongrass, a Federally-listed noxious weed that forms 

dense mats and significantly reduces native tree and plant regeneration. Congongrass is extremely flammable and 

may contribute to hazardous wildfire conditions. In 2015, for the first time since funding for cogongrass control 

began in Georgia, the State had more dead cogongrass spots than reported new infestations. 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 57

Forest Stewardship Program

Budget Line Item Forest Stewardship Program

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Stewardship

Annual Appropriations $23,036 $22,992 $20,500 -$2,492 -11%

Forest Stewardship Total 23,036 22,992 20,500 -2,492 -11%

Annual Appropriations FTEs 56 56 49 -7 -13%

Total Full-Time Equivalents (FTEs) 56 56 49 -7 -13%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Forest Stewardship

Percentage of nonindustrial private forest acres in important forest 

resource areas being managed sustainably, as defined by a current Forest 

Stewardship Plan 2.7% 4.0% 4.0%

Acres of nonindustrial private forest land that are being managed 

sustainably under forest stewardship management plans. (Annual) 1,980,530 1,500,000 1,350,000

Acres of nonindustrial private forest land that are being managed 

sustainably under forest stewardship management plans. (Cumulative) 25,807,014 21,500,000 21,500,000

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget request proposes $20,500,000 for the Forest Stewardship Program, a net decrease 

of $2,492,000 from the FY 2017 Annualized CR (including $31,000 for annualization of the 2017 pay increase and 

$43,000 for the 2018 pay increase) and a decrease of 7 staff years ($22,992,000 and 56 staff years available in 

2017). 

The FY 2018 budget request proposes $20,500,000 to provide assistance to private landowners seeking to manage 

their forest lands. Better management of private lands supports the maintenance of nearby national forest and 

grasslands, and provides an economic contribution to local economies.

Program Overview

The Forest Stewardship Program (FSP) is the primary Forest Service program 

focused on private forestland management and conservation. This program plays 

a central role in assisting private landowners - who own more than two-thirds of 

our Nation’s forests – to address their most pressing resource management 

concerns. The program assists landowners through a national network of forestry 

professionals, primarily State forestry agencies, offering a variety of educational and technical assistance programs 

and activities, including comprehensive, multi-resource Forest Stewardship Plans. 

Two-thirds of our Nation’s 

forests (445 million acres) are 

privately owned.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 58

Private forestlands provide numerous benefits for the American public, and keeping them intact as working forests is 

critical to maintaining these benefits. For example, private 

forestlands supply almost 30 percent of the surface drinking water 

to cities and rural communities, provide habitat for 60 percent of all 

at-risk species in the U.S., and provide over 90 percent of all the 

timber harvested in this country. This program helps landowners’

access services and incentives, including forest certification, and 

financial help like cost-share programs and tax incentives. The 

Forest Service works with State forestry agencies and other partners 

to maximize program investments by linking individual landowner 

objectives to those of surrounding landscapes, and supporting 

development of multi-landowner, landscape-scale Forest 

Stewardship Plans. 

Forest Stewardship Plans help motivate landowners to actively plan 

and manage their forests, greatly increasing the likelihood that their 

forests will remain productive and healthy, and that future 

generations will see the social, economic, and environmental 

benefits of these lands. Forest Stewardship Plans must consider the 

possible near- and long-term impacts of drought, including 

increased fire risk, invasive species migration, and species range 

and habitat shifts. Where appropriate and feasible, management 

plans will include actions to mitigate the adverse impacts of a changing climate.

This program also helps landowners achieve their forest management objectives. These actively-managed forests 

provide timber, wildlife habitat, watershed protection, recreational opportunities, and many other benefits for 

landowners and communities. Approximately 300 million acres of these forests have private owners who use the 

land for non-industrial purposes. The FSP focuses on management of these small-acre holdings.

The Forest Service maintains longstanding partnerships with the USDA Natural Resource Conservation Service (, 

the American Forest Foundation, the National Association of Conservation Districts, National Association of State 

Foresters, and other partners to coordinate and streamline technical assistance and address diverse landowner needs. 

This includes a web-based management plan and Stewardship Mapping and Reporting Tool (SMART) that tie 

program accomplishments to a variety of landscape management objectives. Due to its unique role in reaching and 

assisting private forest landowners, and the fact that the majority of America’s forests are privately owned, the FSP 

is critical to fulfilling an all-lands vision for healthy and resilient forests.

Past Performance

The Forest Service will continue working with States to focus program investments where multiple resource 

outcomes are more likely based on State Forest Action Plans. The agency expect performance to improve as the 

Forest Service and States implement the recently-adopted Landscape Stewardship approach, which includes the 

development of multi-landowner, landscape scale Forest Stewardship Plans. The agency is seeing increases in 

program performance and impacts within priority areas.

In FY 2016, FSP supported high priority landscape projects that contribute to the agency’s national strategic goals of 

“Sustain our Nation’s Forest and Grasslands,” “Deliver Benefits to the Public” and “Apply Knowledge Globally”.

The FSP also helps create jobs in rural communities by sustaining local forest product markets and increasing 

demand for qualified private forestry consultants, loggers, and State agency field foresters. For example, the familyowned Bar Cross Ranch worked with the Arizona Department of Forestry and Fire Management (DFFM) and NRCS

to implement their Forest Stewardship Plan objectives. The DFFM and NRCS provided technical and financial 

assistance that reduced fire risk and improved forest health on the ranch. As a result of this partnership success, 

Arizona DFFM and NRCS will co-fund three new forester positions in 2017 to ensure private forest landowners 

receive the financial and technical assistance needed to manage their woods. The FSP also helps prepare forest 

landowners for participation in emerging ecosystem services markets and other voluntary incentive programs. The 

Bar Cross Ranch, Williams, AZ

Cross-boundary partnerships were the key 

to success for Bar Cross Ranch and the 

surrounding community.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 59

FSP encourages long-term stewardship of non-industrial private forestlands by assisting owners in actively 

managing their woods. In FY 2016, Hawaii’s, the Department of Land and Natural Resources, partners, and 

community members developed the 1,200-acre Kapapala Koa Canoe Forest’s management plan to restore the native 

Acacia koa forest for its environmental, cultural, and economic values. With agency support, they decided to 

integrate the Education Plan into the larger Management Area Plan so it would serve as the catalyst for engaging the 

community in stewardship of the area. The program introduces students to the complex interactions between the 

trees, birds, and water. 

With agency support, the Sustaining Family Forests Initiative (SFFI) is teaching natural resource professionals 

innovative approaches for reaching family forest woodland owners with effective conservation and stewardship 

messages, services, and programs. Using this program’s funds in FY 2016, the SFFI expanded their program across 

the Nation, the Pacific Islands, and U.S. Territories. The program has reached 300 individuals from 115 natural 

resource management and conservation organizations, including those attending a workshop in Hawaii for Pacific 

Island representatives. 

In the Midwest, the Minnesota Department of Natural Resources (MDNR) is implementing the Tullibee Lakes 

landscape stewardship project to protect priority forested watersheds, water quality, and numerous fish species. In 

FY 2016, MDNR contacted 1,000 landowners, prepared 25,000 acres of FSP plans, and implemented over $90,000 

in cost-share projects. 

In FY 2016, the agency continued implementation and refinement of the SMART online spatial mapping tool, which 

spatially tracks all program accomplishments within priority areas identified in State Forest Action Plans. By using 

the SMART Data Quality Assurance Plan, the agency improved reliability in program performance data. With State 

agencies reporting to SMART and with data quality assurance measures in place, the agency can use this extensive 

database, in combination with other environmental databases, to assess program accomplishments.

In 2016, the agency contracted with NatureServe to compare program data with known locations of rare and 

imperiled species to assess our contribution to biodiversity on a national scale. Results indicate over 4,100 at-risk 

species, including freshwater fishes, invertebrates, reptiles, amphibians, plants, and mammals, occur on or directly 

adjacent to lands in the FSP (e.g., covered by a stewardship plan), including the leather flower (Clematis beadlei) 

that is endangered in Pennsylvania, Illinois, and Missouri. Eighty species have over half of their known occurrences 

on FSP land. NatureServe will develop vulnerability assessments and conservation strategies for selected species to 

help guide management activities. This approach strengthens the delivery of program elements like forest resilience.

In FY 2016, owners managed over 25.8 million acres of non-industrial private forestlands nationwide, according to 

active Forest Stewardship Plans. Of this total, nearly 13.2 million acres are within high priority landscape areas 

identified in State Forest Action Plans. In FY 2016, owners managed an additional 2.2 million acres under 

Landscape Stewardship Plans, and six million acres under a variety of other management plan types supported by 

the program. Many of these plans are precursors to more comprehensive Forest Stewardship Plans that meet the 

established national standard. 

Monitoring results for FY 2016 confirm that owners are managing over 1.9 million acres of State-defined priority 

landscapes as recommended in their Forest Stewardship Plans. Additionally, FSP supported outreach to 

approximately 423,832 landowners in FY 2016, which includes 12,173 active Stewardship Plans and 263,392 

landowners involved in other outreach activities, such as one-on-one technical assistance, participation in field days, 

field-based events, and classes. 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 60

Forest Legacy Program

Budget Line Item Forest Legacy Program

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Legacy Program

Annual Appropriations $62,347 $62,229 0 -$62,229 -100%

Forest Legacy Program Total 62,347 62,229 0 -62,229 -100%

Annual Appropriations FTEs 27 27 0 -27 -100%

Total Full-Time Equivalents (FTEs) 27 27 0 -27 -100%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Forest Legacy Program

Acres of environmentally important forests protected from conversion 

(Annual accomplishment for Discretionary funds) 106,143 95,000 0

Acres of environmentally important forests protected from conversion 

(Cumulative) 2,611,852 2,749,589 2,749,589

Parcelization of forests avoided (number of parcels prevented) 

(Discretionary funds) 13,151 5,441 0

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget does not propose funding for the Forest Legacy program, a decrease of 

$62,229,000 from the FY 2017 Annualized CR. In FY 2018, the Forest Service’s focus will be on the maintenance 

of the existing National Forest System lands.

Program Overview

The Forest Service protects critical forest landscapes threatened by land conversion through the Forest Legacy 

Program (FLP). The agency protects these lands through conservation easements and fee-simple purchases with 

partners, including State agencies, private landowners, and other conservation partners (e.g., The Nature 

Conservancy, The Trust for Public Land, The Conservation Fund, and other conservation organizations). Forest 

Legacy projects keep working forests intact, provide public access for recreation opportunities, and protect critical 

wildlife habitat.

Past Performance

Since its authorization in 1990, the FLP has funded the protection of 2.625 million acres nationwide. These acres 

include approximately 176,095 acres of water and 3,372 miles of streams that were part of fee-simple land purchases 

and conservation easements. In FY 2016, the FLP completed 42 transactions, leveraging $66 million of Federal 

funds with $63.3million of non-Federal funds to protect 106,143 acres.

Agency support helped the Georgia Department of Natural Resources acquire the 6,869-acre Lentile Longleaf Pine 

Tract, securing a significant contiguous longleaf pine tract home to the State’s largest but unprotected gopher 

tortoise population. The tortoise is a candidate for Federal listing by the U.S. Fish and Wildlife Service, but the 

conservation of this tract could potentially prevent the listing. This outcome could avoid negative impacts on the 

State’s commercial timber industry, commercial activity, and the Department of Defense (DOD) military 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 61

installations. The acquisition is part of a pilot initiative of the U.S. Fish and Wildlife Service and with DOD, with 

the goal of securing important habitat through targeted conservation acquisitions to avoid listing endangered species. 

This protective action assists DOD with regulatory predictability for their activities. This project represents a 

successful partnership where multiple entities secured $3.5 million in FLP funds were leveraged with $8.5 million of 

non-Federal funds.

The agency has also engaged in a multi-year effort to update the Program Implementation Guidelines to provide 

clearer information to partners for more efficient program implementation. The agency worked with State partners 

to develop these improved guidelines to help ensure they are a valuable program delivery tool. The agency

anticipates implementing the final guidelines in FY 2017.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 62

Community Forest and Open Space Conservation

Budget Line Item Community Forest and Open Space Conservation

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Community Forest and Open Space Conservation

Annual Appropriations $2,000 $1,996 0 -$1,996 -100%

Community Forest and Open Space Conservation Total 2,000 1,996 0 -1,996 -100%

Annual Appropriations FTEs 0 0 0 0 0%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0%

Justification of Increases and Decreases

The FY 2018 President’s Budget does not propose funding for the Community Forestry and Open Space 

Conservation program, a decrease of $1,996,000 from the FY 2017 Annualized CR. In FY 2018, the Forest 

Service’s focus will be on the maintenance of the existing National Forest System lands.

Program Overview

Through the Community Forest and Open Space Conservation program (CFP), the agency provides financial 

assistance grants to local governments, Indian Tribes and qualified nonprofit organizations (including land trusts) to 

establish community forest. 

Past Performance

Congress authorized the CFP in FY 2008, and the Forest Service

issued the final rule and grants for the first 10 projects in FY 2012. 

In five years, the program has awarded 35 grants and protected 25 

tracts of land. Since the inception of CFP, the Forest Service has 

helped establish or expand 23 community forests and protected more 

than 9,900 acres. 

Among the projects completed in FY 2016 is the Alvord Lake 

Community Forest Project in northwest Montana, a 142-acre project 

was funded in FY 2014. The property includes one-third of a mile of 

shoreline of Alvord Lake and ensures that this portion of the lake 

will always be accessible to the public, (along with the rest of the 

shoreline). This property is adjacent to the Kootenai National Forest 

and locally—owned forest products industry land. The purchasers 

leveraged a CFP grant of $400,000 with non-Federal funds to meet 

the $1.15 million acquisition. The project resulted from 

collaboration between a community and a number of partners, and 

the Vital Ground Foundation, and grant applicant that will own the land. This Foundation has a history of 

collaborating with multiple partners to protect unique and important lands. The owners will manage the land 

according to a community forest management plan to restore the native forest and plant species, protect and 

maintain important wildlife habitat, continue and expand outdoor education, and maintain public use.

The CFP rule is being updated to improve program implementation and administration. Working closely with 

partners and stakeholders, the agency adjusted rule requirements and clarified language, making specific revisions 

that allow CFP grantees to take advantage of additional funding sources as a match to Federal funds, as long as the 

requirements of those funds are consistent with the intent and purposes of the CFP. Additional revisions reduced the 

administrative burden for applicants by eliminating the draft community forest plan from the application process and 

Alvord Lake

Alvord Lake Community Forestry Project, 

Montana. Photo credit: Janet Valle, Forest 

Service.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 63

removing the requirement that applicants submit completed grant forms with their applications. The rule now 

requires that only those applicants selected for funding must fill out additional grant paperwork. The agency expects

these changes to increase the number of applicants to the program and improve efficiency in ensuring protection of 

these important forests. 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 64

Urban and Community Forestry

Budget Line Item Urban and Community Forestry

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Urban and Community Forestry

Annual Appropriations $28,040 $27,987 0 -$27,987 -100%

Urban and Community Forestry Total 28,040 27,987 0 -27,987 -100%

Annual Appropriations FTEs 49 49 0 -49 -100%

Total Full-Time Equivalents (FTEs) 49 49 0 -49 -100%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Urban and Community Forestry

Percentage of people living in communities managing programs to plant, 

protect, and maintain their urban and community trees and forests. 49.0% 48.0% 0.0%

Percentage of people living in communities developing programs and/or 

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

and forests. 30.0% 30.0% 0.0%

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget does not propose funding for the Urban and Community Forestry program, a 

decrease of $27,987,000 from the FY 2017 Annualized CR. In FY 2018, the Forest Service’s focus will be on the 

maintenance of the existing National Forest System lands.

Program Overview

The Urban and Community Forestry (UCF) program is delivered in cooperation with State forestry agencies and 

other national and local partners to provide funding and technical assistance to help communities conserve, protect, 

and enhance urban forests. Strategic collaboration with Federal agency partners magnifies the impact of the UCF 

program, leveraging resources and expertise across program boundaries to promote healthy, vibrant communities.

Past Performance

The UCF program supports critical regional planning and strategic collaboration to sustain urban tree canopy 

benefits across jurisdictional boundaries as major metropolitan regions continue to grow. In FY 2016, the UCF 

program served more than 200 million people in nearly 8,000 communities through the development and 

maintenance of urban forestry programs. The agency worked with State forestry agencies and other partners to 

promote science-based management of urban forest resources in all 50 States, the District of Columbia, U.S. 

Territories, and affiliated Pacific Island Nations. Each year, State and local UCF partners develop programs and 

partnerships to expand the reach of Federal dollars. 

Through financial and technical support, this program partnered with the Arbor Day Foundation to launch the 

Energy-Saving Trees program in 2011 to promote urban tree planting and care. As of 2016, this volunteer program 

delivered over 715,000 young shade trees to utility customers, resulting in reduced energy consumption and costs. 

Research has found that three strategically placed trees can decrease homeowner utility costs by 50 percent, and that 

properly placed trees can reduce cooling costs by 30 percent. In FY 2016, the Florida Forest Service expanded this 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 65

partnership statewide, partnering with The Arbor Day Foundation to 

provide homeowners with 10,000 free trees. 

The National Urban and Community Forestry Advisory Council 

released its 10-year Action Plan (2016-2026) in 2015, incorporating 

input from 1000 stakeholders across the country. A collective 

framework in the Plan guides work with partners. The agency 

awarded $900,000 in National Urban and Community Forestry 

Challenge Cost Share grants during FY 2016. These grants aligned 

with the Plan’s priorities, and included innovative projects that 

support community health priorities, including: 

 calculating urban forestry’s return on investment in terms of 

health care savings;

 assessing the impact of urban nature on Autism symptoms; 

and

 providing tools and resources for communities to integrate 

food-producing trees and plants into the urban landscape,

through the community Food Forestry Initiative.

In FY 2016, the agency led a collaboration among six States and the 

District of Columbia to develop a two-year workplan to implement 

the Chesapeake Bay Watershed Tree Canopy Strategy. To ensure 

local governments get credit for tree planting and conservation efforts 

that contribute towards Chesapeake water quality targets, the UCF 

partnership developed a new science-based crediting approach that the 

Environmental Protection Agency and Chesapeake Bay jurisdictions 

endorse. UCF funding also supported Metropolitan Washington 

Council of Governments in completing an urban tree canopy 

assessment and plan for the seven-county region where neighborhood 

groups are piloting new tools to target tree plantings in areas of 

greatest need.

Arbor Day Foundation 40th

Anniversary

In conjunction with the 40th Anniversary of 

the Arbor Day Foundation’s Tree City USA 

program, the Forest Service provided funding 

to Montana’s Department of Natural 

Resources to build new bridges with Tribal 

partners in urban forest management. 

Through this new State partnership initiative, 

the Blackfeet Community College and 

United Tribes Technical College became the 

Nation’s first Tribal college participants in 

the Tree Campus USA program. The project 

engages Tribal youth in tree plantings, 

maintenance and inventories, and related 

education and training. Photo credit: United 

Tribes Technical College.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 66

International Forestry

Budget Line Item International Forestry

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

International Forestry

Annual Appropriations $8,000 $7,985 $7,120 -$865 -11%

International Forestry Total 8,000 7,985 7,120 -865 -11%

Annual Appropriations FTEs 40 40 36 -4 -10%

Total Full-Time Equivalents (FTEs) 40 40 36 -4 -10%

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $7,120,000 for International Forestry programs, a decrease of $865,000 

from the FY 2017 Annualized CR (including $22,000 for Annualization of the FY 2017 pay increase and $31,000 

for the 2018 pay increase), and a decrease of 4 staff years ($7,985,000 and 40 staff years available in 2017).

The decrease of $865,000 will be distributed proportionally across budget line item for the remaining funds, 

$270,312 will address illegal logging; $216,250 will support International trade; $216,250 will address invasive 

species, and $162,188 will be used to conserve habitat for U.S. Migratory Species. 

Program Overview

The Forest Service Office of International Forestry promotes sustainable forest management globally, and brings 

important technologies and innovations back to the United States. The program represents the interest of the entire 

U.S. forestry community and its stakeholders through international engagement. Effective forest management at the 

global level is necessary to protect American trade interests, such as the ability of domestic timber producers to

compete on a level playing field, and to ensure the sustainability of critical domestic and global natural resources. 

Forest management policy discussions routinely tackle complex issues such as trade, American competitiveness, 

economic growth, illegal logging, and national security. The program also addresses several critical domestic natural 

resource conservation issues, including protecting the Nation from invasive species as well as conserving habitat for 

migratory species of high importance. 

International Forestry maintains programs in the following areas12: 

 Combatting Illegal Logging; 

 Supporting American Forestry in International Trade; 

 Protecting U.S. Forests from Invasive Species; and 

 Conserving Habitat for U.S. Migratory Species.

 

12In addition to the programs described in this Budget Justification, International Forestry implements interagency agreements funded by the Department of 

State, Agency for International Development, and the Millennium Challenge Corporation. These agreements are comprised of foreign assistance programs, 

supporting sustainable international development objectives of the partner agencies. The externally-funded foreign assistance programs are distinct from 

those funded by the Department of Interior, Environment, and Related Agencies Appropriations Act, which support the domestic U.S. forestry community 

interests through international engagement.
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 67

Combatting Illegal Logging

Approximately 15 percent of globally-traded forest products are

illegally harvested wood. Illegal logging is defined as the harvest, 

transport, purchase, or sale of wood and wood products in violation of 

national and international laws. As one of the world’s largest 

international traders in forest products, the U.S depends on the longterm viability and legitimacy of the forest products markets. However, 

the U.S. economy loses approximately $1 billion and over 200,000 jobs 

annually due to illegal logging. The artificially low price of the illegal 

harvest leads to an imbalance where markets of legally sourced wood 

cannot equally compete. These practices threaten the reputations of 

legitimate forestry producers and discourage sustainable management 

practices. U.S. industry and environmentalists are united in their fervent 

opposition to illegal logging. Since International Forestry serves the 

whole American forestry community, it is critical to engage in policy 

and technical issues that curb illegal logging

Beyond the timber industry, illegal logging undermines international 

governance and rule of law. The various tasks associated with illegal 

logging (harvesting, shipping, processing, and trading) are usually 

coordinated through criminal networks. Illegal logging is often linked to a complex web of organized criminal 

activities, including large-scale bribery and corruption, drugs and arms trafficking, and terrorism. Through this 

connection, illegal logging should be considered a national security threat. 

Supporting American Forestry in International Trade Negotiations 

With Commerce estimating global forest products generating an estimated $253 billion annually, the American 

forestry community must be comprehensively represented in international trade discussions. International Forestry 

provides scientific, policy, and coordination support to the U.S. Trade Representative (USTR) and the Department 

of State to ensure that American forestry interests are well-represented.

Protecting the Forests from Invasive Species 

Invasive species pose a significant risk to U.S. forests and grasslands, 

underscoring the need for international collaboration. It is estimated 

that invasive species already inflict billions of dollars in losses to the 

U.S. economy, and there are at least 20 destructive forest pests 

expected to enter the U.S. accidentally through trade in the coming 

decade. Through collaborations with partner countries globally, 

International Forestry works to enhance research and monitoring of the 

most destructive invasive species, such as the emerald ash borer, 

ambrosia beetle, Asian longhorn beetle, European woodwasps, and the 

gypsy moth, as well as identification of biological control agents 

(biocontrols) used to decrease invasive species’ competitive advantage 

over native plants currently impacting forests in the U.S. Without 

international collaboration, the agency cannot effectively control pests 

already in the U.S. nor prevent further introductions. Additionally, 

International Forestry will work with The Nature Conservancy, 

AmericanHort, and National Wooden Pallet and Container Association 

to improve first detection and prevention of the spread of invasive 

species. The coalition will develop educational and outreach resources 

for use in the North America, China, and the Southeast Asia regions.

International Capacity Building to 

Curb Illegal Logging

As part of a regional training for Eastern 

European countries in 2016, Ukrainian 

foresters demonstrate timber tracking 

technology at the site of a timber harvest in 

Western Ukraine. 

Research on Invasive Species

The Emerald Ash Borer, native to East 

Asia, has devastated Ash populations in 

North America. Forest Service scientists are 

working with Chinese scientists to identify 

and test biocontrols to slow its spread and 

mitigate its damage. 
FY 2018 Budget Justification USDA Forest Service

State and Private Forestry 68

Conserving Habitat for U.S. Migratory Species: Keeping Species off the Endangered Species List

Of the more than 770 bird and other species that migrate to the U.S., over 350 species spend the winter in Latin 

America. Many of these species face declining populations due to degradation and habitat loss in their winter 

grounds, directly affecting the investment the U.S. makes in conservation and rehabilitation efforts on both public 

and private lands a significant expense to the U.S. taxpayers. Investing in habitat conservation protects both public 

and private landowners from restrictive measures resulting from an endangered designation, and preserves wildlife 

that U.S. citizens highly value. More than 71 million people fed, photographed, or observed wildlife in 2011, and 

spent nearly $55 billion on their activities, with birding representing the majority. 

International Forestry works with partner countries to sustainably manage conservation lands and protect wildlife 

from illicit timber harvests and deforestation. International Forestry also implements community education and 

outreach programs on the importance of migratory species. Conservation efforts by International Forestry abroad 

support domestic investment in conservation directly, and reduce the likelihood of more costly interventions.
FY 2018 Budget Justification USDA Forest Service

National Forest Systems 69

National Forest System

Appropriation National Forest System

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

National Forest System

Annual Appropriations $1,509,364 $1,506,496 $1,747,442 $240,946 16%

National Forest System Total 1,509,364 1,506,496 1,747,442 240,946 16%

Annual Appropriation FTEs 10,830 10,830 11,644 814 8%

Total Full-Time Equivalents (FTEs) 10,830 10,830 11,644 814 8%

National Forest System

Collaborative Forest Landscape Restoration 40,000 39,924 0 -39,924 -100%

Land Management Planning 36,998 0 0 -3,928 -11%

Inventory and Monitoring $147,998 0 0 -15,717 -11%

Land Management Planning, Assessment & Monitoring 0 184,645 165,000 -19,645 -11%

Recreation, Heritage, and Wilderness 261,719 261,222 252,880 -8,342 -3%

Wildlife & Fisheries Habitat Management 140,466 140,199 125,000 -15,199 -11%

Grazing Management 56,856 56,748 50,600 -6,148 -11%

Forest Products 359,805 359,121 359,121 0 0%

Vegetation & Watershed Management 184,716 184,365 174,400 -9,965 -5%

Hazardous Fuels* 0 0 354,288 354,288 100%

Minerals and Geology Management 76,423 76,278 68,000 -8,278 -11%

Landownership Management 77,730 77,582 69,000 -8,582 -11%

Law Enforcement Operations 126,653 126,412 129,153 2,741 2%

*Prior to FY 2018, the Hazardous Fuels budget line item was included under Wildland Fire Management.

Note: Beginning in FY 2017, the Inventory and Monitoring and Land Management Planning budget line items were combined into one budget 

line item, Land Management Planning, Assessment and Monitoring.

Program Overview

The FY 2018 President’s Budget proposes $1,747,442,000 for the National Forest System (NFS), an increase of 

$240,946,000 from the FY 2017 Annualized CR (including $5,068,000 for annualization of the 2017 pay increase 

and $16,030,000 for the 2018 pay increase), and an increase of 814 staff years ($1,506,496,000 and 10,830 staff 

years available in 2017).

The NFS appropriation funds our management of over 193 million acres of national forests and grasslands. By 

conserving forests and grasslands, the agency provides sustainable timber products and conserves air quality, water, 

plants, wildlife, and fisheries. The agency facilitates mining, timber, and restoration projects on NFS lands, creating 

jobs and wealth in rural economies. The agency provides a vast array of recreational opportunities to millions of 

Americans, including hunting, fishing, camping, and hiking. The agency also partners with local communities and 

other agencies to reduce the threat of catastrophic wildland fires.

Managing the many natural resources on national forests and grasslands is complex. NFS programs protect and 

improve water quality, offer recreation opportunities for the public, produce energy for the Nation, support 

infrastructure like pipelines and cell towers, produce timber and non-timber forest products, maintain open space, 

and preserve wildlife habitat. These activities are managed to meet the needs of the Nation while maintaining or 

improving the health of the land and protecting the environment.

The FY 2018 budget requests that the Hazardous Fuels program be moved from the Wildland Fire Management

program to the National Forest System program. As most hazardous fuels work takes place on NFS lands, the 

agency will be able to administer this program more efficiently and effectively if managed as part of the National 

Forest System. 
FY 2018 Budget Justification USDA Forest Service

National Forest Systems 70

The FY 2018 budget requests continuation of the Integrated Resources Restoration (IRR) pilot in Regions 1, 3, and 

4. For the past six years (FY 2012-FY 2016), the agency embarked on this pilot program to increase efficiency and 

flexibility to perform integrated watershed protection and landscape-scale restoration. The agency has evaluated the 

success of the IRR pilot and found that the pilot has provided best practices about how to conduct collaborative 

budget execution across the agency. The IRR pilot regions have been more successful than non-pilot regions in 

completing enough restoration projects to change the overall health of the watershed, achieving 60 percent of the 

total agency improvement in FY 2015, and about 40 percent of improved watersheds in FY 2016. Independent 

monitors have also found that the IRR’s combined budget authority structure encourages more integration among 

staff and leadership. The agency will continue implementing the lessons of IRR in 2018. As in previous years we 

will request authority to use “up to” a certain amount from each program for the IRR pilot. The table below shows 

how much funding from each program will be requested for the IRR pilot.

FY 2018 Integrated Resource Restoration

(dollars in thousands)

Budget Line Items

FY 2018

Amount Requested for 

Program

FY 2018

Authority Requested 

for IRR

Wildlife and Fisheries $125,000 Up to $31,360

Vegetation and Watershed $174,400 Up to $50,581

Forest Products $359,121 Up to $65,560

Legacy Roads and Trails $0 $0

Hazardous Fuels $354,288 Up to $24,000

 Note: Appropriation language states that up to $162,000,000 can be used for the IRR Pilot. The totals in this table

 add up to $171,501,000; however, the total contributions from the respective budget line item will not exceed

 $162,000,000.
FY 2018 Budget Justification USDA Forest Service

National Forest Systems 71

Collaborative Forest Landscape Restoration

Budget Line Item Collaborative Forest Landscape Restoration

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Collaborative Forest Landscape Restoration

Annual Appropriations $40,000 $39,924 0 -$39,924 -100%

Collaborative Forest Landscape Restoration Total 40,000 39,924 0 -39,924 -100%

Annual Appropriations FTEs 268 268 0 -268 -100%

Total Full-Time Equivalents (FTEs) 268 268 0 -268 -100%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Collaborative Forest Landscape Restoration

Acres of forest vegetation established 23,985 23,615 0

Acres of forest vegetation improved 67,118 48,755 0

Acres of noxious weeds and invasive plants treated 28,917 23,956 0

Miles of stream habitat restored or enhanced 184 86 0

Acres of terrestrial habitat enhanced 461,381 348,371 0

Volume of timber sold (million board feet (MMBF)) 427.0 672.0 0

Number of green tons and/or volume of woody biomass from hazardous 

fuel reduction and restoration treatments on Federal land that are made 

available through permits, contracts, grants, agreements, or the 

equivalent 213,864 650,000 0

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

treated 360,079 348,842 0

Acres of hazardous fuels treated outside the Wildland Urban interface to 

reduce risk of catastrophic fire 280,372 158,794 0

Miles of roads decommissioned 76 187 0

Miles of passenger car system road reconstruction and capital 

improvement 123 292 0

Miles of high clearance system road reconstruction and capital 

improvement 195 145 0

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Note: Targets are estimates of annual –outputs/accomplishments from the Collaborative Forest Landscape Restoration 

Program project activities.

Justification of Increases and Decreases

The FY 2018 President’s Budget does not propose funding for the Collaborative Forest Landscape Restoration 

program, a decrease of $39,924,000 from the FY 2017 Annualized CR and a decrease of 268 staff years 

($39,924,000 and 268 staff years available in 2017).

Eliminating this program will reduce duplication among Federal programs, as other Forest Service programs also do 

restoration work on National Forest System (NFS) lands. 

Program Overview

The CFLRP was established by the Omnibus Public Land Management Act of 2009 (P.L. 111-11, Title IV,) which 
FY 2018 Budget Justification USDA Forest Service

National Forest Systems 72

authorized landscape-scale restoration to address landscape-scale threats. Per the Act, each landscape must be at 

least 50,000 acres in size, and projects must promote the resilience and adaptive capacity of ecosystems that have 

been degraded, damaged, or destroyed. 

The Administration is refocusing how Forest Service is managing national forest and grasslands. This realignment is 

expanding existing efforts by continuing to invest in the projects that are ongoing and not to stray from the agency’s

core values by attaining new projects. Through this shift of program work, the agency will continue to advance 

restoration by engaging diverse communities and partners outside of the Forest Service on current projects. Projects 

that have been selected in prior years and have been allocated funding will continue to support the agency’s strategic 

goals and sustain the Nation’s forest and grasslands while mitigating wildfires.

Benefits of Collaboration

The agency completed an assessment of our progress in meeting program goals and presented the results in the 

CFLRP five-year report released in April 2015. A more thorough discussion may be found in the report at: 

http://www.fs.fed.us/restoration/documents/cflrp/CFLRP_5-YearReport.pdf. As proposed, the lessons learned from 

the CFLRP can be applied as appropriate to other restoration activities,

Past Performance 

Reducing the Risk of Uncharacteristic Wildland Fire: CFLRP 

Treatments and the Cold Springs Fire

On the afternoon of July 10, 2016, the Cold Springs Fire burned 

through approximately 97 acres of NFS land near Nederland, 

Colorado. This area had been manually treated to reduce hazardous 

fuels in April 2015 using CFLRP funding. While the slash piles had 

not yet been burned, this project rearranged a large amount of heavy 

fuels, increasing the spacing between the tree canopies. When the 

wildfire hit the unit, fire activity moved from the tree tops down to the 

ground, allowing fire-fighters to engage the fire and hold it on two 

sides of the unit. Firefighters who were on the scene believe that the 

rearrangement of heavy fuels in this unit prevented the fire from causing more spot fires across Boulder Canyon, 

which would have put thousands more residences in the path of wildfire. Surrounded on all sides by private 

property, the unit is credited with preventing the destruction of more homes. While there were hundreds of homes 

along the fire’s perimeter, the loss was limited to eight residences.

Ridge Road Unit

Photo of Ridge Road Unit taken by a firefighter at 

12:37 July 10th, just before fire moved through the 

area. Photo Credit: Forest Service. 
FY 2018 Budget Justification USDA Forest Service

National Forest System 73

Land Management Planning, Assessment and Monitoring

Budget Line Item Land Management Planning, Assessment & Monitoring

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Annual Appropriations

Inventory and Monitoring $147,998 $147,717 $0 -$15,717 -11%

Land Management Planning 36,998 36,928 0 -3,928 -11%

Land Management Planning, Assessment & Monitoring 0 0 165,000 -19,645 -11%

Land Management Planning, Assessment & Monitoring Total 184,996 184,645 165,000 -19,645 -11%

Annual Appropriation FTEs

Inventory and Monitoring 857 857 0 0 0%

Land Management Planning 224 224 0 0 0%

Land Management Planning, Assessment & Monitoring 0 0 964 -117 -11%

Total Full-Time Equivalents (FTEs) 1,081 1,081 964 -117 -11%

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Note: Beginning in FY 2018, the Inventory and Monitoring and Land Management Planning budget line items were combined 

into one budget line item, Land Management Planning, Assessment and Monitoring.

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Land Management Planning, Assessment & Monitoring

Number of land management plan amendments underway 23 10 10

Number of land management plan revisions or creations underway 25 32 32

Acres of inventory data collected and acquired 52,744,035 15,000,000 11,259,999

Number of annual monitoring requirements completed 950 1,130 1,130

Number of land management plan assessments completed 27 18 18

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $165,000,000 for the Land Management Planning, Assessment and 

Monitoring program, a decrease of $19,645,000 from the FY 2017 Annualized CR (including $420,000 for 

annualization of the 2017 pay increase and $1,327,000 for the 2018 pay increase) and a decrease of 117 staff years 

($184,645,000 and 1081 staff years available in 2017).

The FY 2018 budget request proposes $33,000,000 to continue work on priority land management plans. The 

decrease in funding and emphasis on priority plans will reduce work on lower priority land management plans, 

revisions to plans, plan amendments, and assessments. The FY 2018 budget request also proposes $132,000,000 to 

inventory approximately 11.3 million acres deemed critical for informing the development and revision of land 

management plans.

Program Overview

The Land Management Planning, Assessment and Monitoring program is the foundation of the agency’s 

stewardship responsibilities to keep forests and grasslands healthy and resilient. The program helps forests provide 

the American people with ecosystem services including clean air and water, timber and other resources, access to 

grazing, outdoor recreation, and more. 
FY 2018 Budget Justification USDA Forest Service

National Forest System 74

Forest Service management occurs around a continuous cycle of assessing, planning, implementing and adjusting 

programs and projects based on information acquired through integrated inventory and monitoring activities. Land 

management plans (LMPs) guide management activities on the 154 national forests and 20 grasslands in the 

National Forest System (NFS). Monitoring and assessment activities provide critical information to inform our 

management of resources on these lands

Land Management Plan Revision and Amendments

The Land Management Planning component drafts, revises, and amends land management plans (LMPs) required 

under the National Forest Management Act (NFMA). LMPs provide a long-term vision of the desired conditions and 

objectives that each National Forest System (NFS) unit hopes to achieve, and a management strategy for how to 

achieve them. Each forest and grassland collaborates with the public to develop a strategic management plan 

addressing a wide variety of programs and issues. The LMP is the basis for identifying, prioritizing, and 

implementing the programs and projects to move the unit towards achieving desired conditions and agency 

objectives. 

The 2012 Planning Rule guides the development and revision of new forest plans, and emphasizes an adaptive 

management concept and public collaboration. This leads to more effective management by identifying the highest 

priorities and addressing community needs. The Planning Rule Federal Advisory Committee, made up of a diverse 

group of interests, helps guide and implement the Planning Rule. 

Inventory and Monitoring

The inventory and monitoring component provides the information needed to successfully complete LMP revisions 

and amendments with data obtained through inventory, monitoring, and assessment activities on national forests and 

grasslands. These activities support the adaptive management concept in the 2012 Planning Rule, providing a 

collaborative and science-based framework for creating land management plans that support ecological 

sustainability and contribute to rural economies. Inventory and monitoring activities ensure that up-to-date 

information using the best available science is readily accessible and effectively applied. The agency uses this 

information to manage the programs more effectively, to identify our highest priorities, and to be responsive to

community needs. To support the adaptive management work, the agency uses critical information to evaluate 

results and adjust actions during the assessment, development, and monitoring phases of land management planning,

as well as specific projects and programs designed to implement these plans.

The planning and assessment processes have been enhanced by more effective inventory and monitoring as a result 

of clearly established requirements, efficiencies in data management, data collection standards and protocols, 

improved analytical tools, and corporate applications designed to 

make data accessible to managers, partners, and the public. 

Having quality data and information helps the agency understands

the conditions on the land, and the social and economic issues 

associated with natural resources. Inventory, monitoring, and 

assessment information also supports agency decision-making at 

all levels and the prioritization of management actions.

All existing and newly acquired data, including vegetation data 

obtained from the Forest Inventory and Analysis Program in the 

Research Program, resides in a centralized repository which 

supports the efficient implementation of the 2012 Planning Rule 

and other programs requiring inventory data. Assessments 

conducted in advance of LMP revisions determine the need to 

change direction in existing plans. As the agency implements the 

2012 Planning Rule, is has been emphasizing meaningful public 

engagement throughout the planning process, including 

assessments and ongoing monitoring. The use of “citizen science” 

(where volunteers can contribute by forming research questions, 

collecting and analyzing data, or interpreting results) and 

Diverse Interests Guide Planning

Committees with members from nearly every 

occupational group, industry group, and 

geographic location have played an important role 

in the accomplishment of the Forest Service 

mission. Photo Credit: Forest Service
FY 2018 Budget Justification USDA Forest Service

National Forest System 75

information generated by third-party monitoring are becoming important aspects of this program. 

Restoration and other economically and socially important activities could not occur on NFS lands without timely 

forest plan revisions and updates, informed by ongoing and timely monitoring and assessment activities. 

Collaborating and engaging with partners and the public is critical to revising forest plans and ensuring the strongest 

outcomes possible on behalf of the American public. 

Past Performance

Plans are Larger-Scale, More Efficient, and Emphasize Public Involvement

LMPs written under the 2012 Planning Rule address issues that cover larger geographic areas over longer time 

periods. The agency is emphasizing meaningful public engagement throughout all phases of the planning process. 

The public is being asked to provide information to the agency on site specific, area or forest-wide issues of concern 

or interest that can assist in completing assessments, developing plan components, monitoring, and implementing 

projects. As a result, the agency is producing better, more comprehensive plans which will lead to more on-theground accomplishments and benefits for the American people. The agency improved efficiency by electronically 

publishing and e-filing planning and project National Environmental Policy Act documents. These efficiencies, 

coupled with implementation of lessons learned from initial revision efforts under the new Rule such as streamlining 

assessments, developing focused plan components, and identifying meaningful monitoring items tied to desired 

conditions and objectives, will help reduce planning timeframes from five to six years (under the previous planning 

rule) to an average of three to four years. 

Amending and Revising Land Management Plans

The agency continues to amend and revise LMPs to meet the requirements under the 2012 Planning Rule. Current 

revision and amendment efforts will serve as a model for future plans and revisions. In early FY 2017, the Tongass 

National Forest completed the first major amendment of a plan completed under the 1982 Planning Rule. These 

efforts have helped the agency refine its procedures and will serve as a model for future amendments. The agency

expects to reach a consistent level of plan revision activity after FY 2017, after many of the “early adopter” 

revisions under the 2012 Planning Rule are completed, along with several revisions using the previous planning rule 

procedures. Early adopter forests were the first units implementing the new 2012 Planning Rule requirements. The 

agency will then be able to support an average of four new revision starts, and have a total of 16 to 20 revisions 

underway in any given year. 

Interagency Planning Collaboration

In September 2015, a multi-year collaborative effort between the Forest Service, Bureau of Land Management and 

others culminated in the completion of land management plan amendments that are designed to conserve sagegrouse populations and habitat on NFS lands. Two Records of Decision were signed that approved the desired 

conditions, standards, and guidelines for 20 plan amendments. In FY 2016, implementation activities began and the 

agency is currently monitoring the effectiveness of treatments and other activities on the landscape. 

New Plan Monitoring Requirements

The agency has completed the transition to the new plan monitoring requirements under the 2012 Planning Rule in 

2016. These requirements are for units that are not currently revising their land management plans under the new 

Rule. Most units transitioned their monitoring plans by the end of FY 2016. All units have had some level of public 

engagement during their transition process. The agency will continue to work with the remaining units to get their 

monitoring plans transitioned as soon as possible.

This program also supports the Planning Rule requirement to develop regional broader-scale monitoring strategies. 

These strategies are intended to identify monitoring questions, indicators, and data sources that can be used on 

multiple units within a region to meet unit monitoring program requirements under the 2012 Planning Rule. These 

strategies can also provide an opportunity to integrate monitoring needs across all types (i.e., plans, programs and 
FY 2018 Budget Justification USDA Forest Service

National Forest System 76

projects) and levels (i.e., local, landscape, regional and national) of the agency. The agency has established a pilot in 

Regions 2 and 3 to establish an approach with a particular focus on utilizing data and information available from 

partners and other external sources. Other regions have also begun developing processes and identifying questions 

and indicators that will become part of these regional strategies. 

Social, Economic, and Ecological Assessments

By 2018, 25 units revising their plans under the new Rule will have published the results from the multiple unique 

social, economic, and ecological assessments they conducted to meet the 2012 Planning Rule requirements. 

Assessments are a key initial step for determining the need to revise or amend plans in response to changing 

ecological, social, and economic conditions, and for collaborating with the public. Lessons learned/best practices 

will be used to streamline the assessment process for future LMP revision efforts. These improvement opportunities 

are being addressed through the agency’s efforts to identify and share information on “Lessons Learned” from the 

first units implementing the new 2012 Planning Rule requirements. The Planning Rule Federal Advisory 

Committee, made up of a diverse array of interests, was established for planning and plan implementation, and is 

also reviewing agency work and providing recommendations designed to improve implementation of the assessment 

requirements.
FY 2018 Budget Justification USDA Forest Service

National Forest System 77

Recreation, Heritage, and Wilderness

Budget Line Item Recreation, Heritage, and Wilderness

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Recreation, Heritage, and Wilderness

Annual Appropriations $261,719 $261,222 $252,880 -$8,342 -3%

Recreation, Heritage, and Wilderness Total 261,719 261,222 252,880 -8,342 -3%

Annual Appropriations FTEs 1,862 1,862 1,799 -63 -3%

Total Full-Time Equivalents (FTEs) 1,862 1,862 1,799 -63 -3%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Recreation, Heritage, and Wilderness

Number of recreation site capacity (PAOT days) operated to standard 67,857,405 70,000,000 67,200,000

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 96.9% 100.0% 100.0%

Number of recreation special use authorizations administered to standard 17,155 15,500 15,500

Number of wildernesses meeting baseline performance for preserving 

wilderness character 30 26 26

Number of wild and scenic river areas meeting statutory requirements 44 45 45

Number of heritage programs managed to standard 88 80 80

Heritage program score 5,259 5,260 5,260

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $252,880,000 for the Recreation, Heritage, and Wilderness program, a 

decrease of $8,342,000 from the FY 2017 Annualized CR (including $783,000 for annualization of the 2017 pay 

increase and $2,477,000 for the 2018 pay increase) and a decrease of 63 staff years ($261,222,000 and 1,862 staff 

years available in 2017).

The FY 2018 budget request proposes $252,880,000 to focus on priority projects and activities, including 

simplifying the permit process to make it easier for the public to access Forest Service lands, improving roads and 

trails for recreational access, and providing volunteer and work opportunities for youth and veterans. There may be a 

slight decrease in some agency recreational services, including operations of visitor centers and campgrounds, 

recreation and tourism planning, providing educational and interpretive programs, and interacting with partner and 

volunteer groups. The funding decrease will slightly reduce the agency’s ability to keep recreation sites operating to 

minimum standards as compared to FY 2017. 

Program Overview 

Inspiring Passion for the Land

The Recreation, Heritage, and Wilderness Program provides the public 

with opportunities to get outside and enjoy their national forests and 

grasslands. With nearly 149 million visits annually, recreation is the 

most common portal through which people connect to Forest Service

Perhaps the rebuilding of the body and 

spirit is the greatest service derivable 

from our forests, for what worth are 

material things if we lose the character 

and quality of people that are the soul 

of America?” --Arthur Carhart, Forest 

Service Landscape Architect, 1919
FY 2018 Budget Justification USDA Forest Service

National Forest System 78

lands. Outdoor opportunities and experiences promote physical, mental, and spiritual health; enhance community 

identity and sense of place; help bond family and friends; and foster citizen stewardship of the Nation’s forests and 

grasslands.

Additionally, as visitor spending ripples through the U.S. economy, the Forest Service Recreation program 

contributes roughly $10.3 billion to the Gross Domestic Product and sustains about 143,000 full- and part-time jobs. 

The program also manages Wilderness areas and Wild & Scenic Rivers, which provide experiences for those 

seeking solitude through remote, pristine settings away from the distractions of a city or town.

The program is extensive, both geographically and in terms of the diversity of our opportunities. The agency is 

modifying facilities to be available to everyone, including the estimated 57 million Americans with disabilities. 

More accessible facilities also provide recreation opportunities for senior citizens, large family groups, and families 

with infant strollers or young children. The agency is committed to inclusive participation for all people, regardless 

of age or ability. The agency supports and connects with the tourism industry by delivering interesting and inspiring 

interpretive and educational programs. The agency uses a full array of media, including interpreter-led guided tours 

internet content, and interactive mobile devices.

Recreation, Tourism, and Public Services

Recreation, Tourism, and Public Services programs provide citizens with continual access to their natural 

surroundings through a variety of settings, from highly developed recreation facilities to more rugged geographic 

features. The Forest Service provides a vast number of diverse outdoor recreation opportunities, and maintains the 

largest system of trails in the Nation, providing visitors with connections between their communities and forests. 

The agency reaches an even broader number of visitors by administering “special use” permits to outfitters and 

guides, whose activities include whitewater rafting, horseback riding, game hunting, youth education trips, and 

scenic jeep tours. For many Americans, these activities introduce them to their public lands, and the use of outfitters 

and guides from small businesses provides jobs and income to local communities.

Heritage, Business Management, and Planning

Forest-based recreation contributes greatly to connecting the American people to their natural and cultural heritage. 

Such connections are critical to building a conservation ethic among Americans. The agency develops web 

messaging, interpretive products, and special events to enhance visitor interactions, and educates visitors on the

Nation’s history. For example, the “Passport in Time,” 

program allows the public to work with an archeologist 

on national forest land, as they dig through soil and 

explore past settlements or sites with historic character.

The agency shares leadership with other Federal agencies 

and departments such as the Department of the Interior, as 

well as nongovernmental organizations and volunteers to 

provide recreation opportunities seamlessly across the 

landscape. Partnerships empower citizens to engage with 

their government, build links to the past, and value their 

cultural heritage. Partnerships employing Native 

American youth help build greater Tribal relationships to 

National Forest System (NFS) lands and agency staff, as 

youth conduct archaeological surveys and influence 

agency interpretations of the past. Partners and volunteers 

support agency efforts in providing quality recreation 

experiences. These programs enable young people, senior 

citizens, and veterans to serve and work on public lands and are essential to developing the agency workforce and 

sustaining these resources for future generations.

The Program Provides:

 26,740 recreation sites 

o 27 percent of individual units within 

these sites are accessible

o 48.3 percent of recreation buildings are 

accessible

 157,115 miles of trails

 27,800 permits for recreation uses requiring special 

use authorizations

 362,000 sites with historical and/or cultural 

significance

 26 major visitor centers

 22 National Historic Landmarks

 36.7 million acres of Wilderness

 5,000 miles of Wild and Scenic Rivers
FY 2018 Budget Justification USDA Forest Service

National Forest System 79

Visitors participating in activities in areas where user 

fees are charged can enjoy their experience knowing that 

a portion of those fees return to the site to help sustain it, 

stretching limited funds while fostering citizen 

stewardship and a sense of contribution to national 

resources and local communities.

Past Performance 

In 2016, the Forest Service refocused its efforts on 

strengthening and deepening connections with the public 

through priority activities to enhance citizen experiences, 

services, and benefits. Working in collaboration with a 

diverse and engaged public, the Forest Service embraces 

its leadership role as a community member, public land 

steward, and key service provider of access to public 

lands. This includes continued travel management 

planning, the new National Trails Strategy, and lessons 

learned through the Valuing Outdoor Demonstration 

Areas as explained below. This work helps the Forest 

Service to deliver a higher standard of service to the 

public. Pre-work included the following six priorities:

Enhancing Visitor and Community Benefits 

To increase public access and enhance visitor experience on national forests and grasslands, the Forest Service is 

modernizing access to some recreational activities requiring permits. Currently, it is difficult to keep pace with the 

requests for recreational activity permits. To address this issue, the agency focused on simplifying the permit 

authorization processes, modernizing the technology, and embracing a sensible customer service and user-friendly 

approach through increased workforce capacity and better training. Permit review “strike teams” were mobilized to 

significantly reduce permit related backlogs (which were reduced by 31 percent). These efforts will enhance guest 

services overall.

In FY 2016, the agency partnered with ski areas to implement year-round recreation opportunities, facilitating access 

for an increasingly urbanized and demographically diverse Nation. Outdoor enthusiasts can now look forward to 

natural resource-based, year-round activities such as zip lines, mountain bike terrain parks and trails, disc golf 

courses, and rope courses. Benefits to the American public include expanding volunteerism, employment, and 

access for youth and veterans, while contributing economically to local communities.

Community Service and Volunteer Programs

The agency has a strong legacy of joint stewardship of public lands with citizens. The 21st Century Conservation 

Service Corps is a natural extension of the work that has occurred on NFS, lands for nearly 50 years, and has been 

key to the Forest Service ability to achieve its mission. By building capacity to manage volunteers and 21st Century 

Conservation Service Corps projects, the agency has enabled more Americans to “Get Outside, Grow, and Give 

Back.” In 2016, the agency provided work opportunities for more than 1,500 youth and veterans. A first-time 

volunteer or community service experience can carry life-long memories, sometimes even leading people to choose 

careers in land stewardship.13

All segments of the American public have opportunities to be inspired, and to learn about their heritage. Throughout 

FY 2016, in recognition of the 50th Anniversary of the National Historic Preservation Act, the agency completed 

 

13 21st Century Conservation Service Corps (21CSC) and Job Corps. Both 21CSC and Job Corps are examples of public lands corps (PLC). 

Forest Service PLC programs such as 21CSC are through Volunteers and Service and are operated with partnerships. Job Corps is considered to 

be part of a USDA operated PLC program and managed by the Forest Service land.

Enhancing Visitor and Community Benefits 

230 MILLION Americans live within 100 miles of a 

National Forest or Grassland

The National Forest Systems provides:

115,000 activity locations

156,000 miles of trails

380,000 heritage sites

2 MILLION acres of lakes

200,000 miles of fishable streams

36.5 MILLION acres of wilderness

4.4 MILLION camping reservations through 

Recreation.gov since 2007

122 Wild and Scenic Rivers

136 National Scenic Byways covering 9,100 miles

60 percent of all downhill skiing capacity in the U.S.

Source: “A Sustainable Recreation Future” National 

Forest Service Recreation Program 
FY 2018 Budget Justification USDA Forest Service

National Forest System 80

over fifty projects across the Nation, ranging from working with Tribal youth to rehabilitating historic structures.

Digital Innovation

Today, the public receives its information digitally, primarily via mobile devices. The Forest Service has built 

successful collaborative partnerships with the Discover the Forest and Get to Know Your Forest Programs. These 

programs use photography in a creative way to encourage young Americans to reconnect to the outdoors through 

social media. For example, among the Discover the Forest campaign target audience of parents of children age 8-12, 

use of the website https://www.DiscoverTheForest.org has grown significantly since the campaign launched, from 

three percent in June 2011 to a monthly median of 20 percent between October 2014 and May 2015. These 

collaborative efforts with the Forest Service are enriching youth experiences by shaping a positive public image of 

the Nation’s forests. The agency also has a digital media campaign, called “It’s All Yours – Go Play!” featuring 

videos of recreational activities on NFS lands. For a sample video, see https://vimeo.com/118134962.

Improving Citizen Access through Recreation Roads and Trails

The agency aspires to provide economically critical linkages to 

forest dependent communities. Recreation trails provide safe, 

sustainable, and well managed access to a broad spectrum of 

recreation opportunities and experiences. The agency is providing 

safe, high quality access for the public to enjoy a wide range of 

outdoor experiences.

Key Special Places

Special places are designated by Congress and the President, and 

are loved and celebrated by citizens who visit them. However, if 

too many people visit or visitation is not properly managed, 

overuse can compromise the integrity of these sites. To maintain this integrity, the agency has established 

Demonstration Areas to test new ideas and get feedback from the public. The goal is to determine how to best 

balance protecting the value of these iconic places while providing opportunities to connect citizens to the land.

Wilderness and Wild & Scenic Rivers

The four land management agencies that share the responsibility of preserving the character of Congressionally

designated Wilderness – the Forest Service, the Bureau of Land Management, the Fish and Wildlife Service, and the 

National Park Service - developed a plan to guide Federal Wilderness stewardship priorities for the next five years 

and beyond. Consistent with the plan, the agency will implement a national monitoring program in FY 2018. This 

effort will establish a baseline for Wilderness character in all Wilderness areas managed by the agency and evaluate 

trends over time consistent with the protocols used by the Department of the Interior agencies. The agency also 

implemented a new performance measure, Wilderness Stewardship Performance (WSP,) that evaluates the agency’s 

progress at taking the stewardship actions necessary to “preserve Wilderness character.” This measure provides 

flexibility for local staff to choose ten elements from a broader set of 20 that most closely reflect local stewardship 

priorities while using a consistent framework to compare results across the country. The agency funded 77 field 

stewardship projects in FY 2016 to improve Wilderness character, and invested directly in building capacity in 

partners through grants to the National Wilderness Stewardship Alliance.

The agency provided national funding to assist the Regions with the 

completion of boundary legal descriptions and final maps, as required by 

law, resulting in the completion of sixteen Wilderness, seven Wild and 

Scenic River (WSR) corridors, and one Wilderness study area boundary 

package. These documents provide the legal basis for boundary 

protection, and serve as a template for future land transactions. They are 

required by law and provide the spatial and legal descriptions important to maintaining the integrity of Wilderness 

and Wild & Scenic Rivers within the NFS. Establishing legal boundaries helps prevent conflicting land claims, and 

Using visitor satisfaction feedback to improve visitation 

experiences for all Americans-

 On the Coronado National Forest in Arizona, 

visitor use monitoring data is being used to shape 

outreach and improve experiences to boost the 

number of visitors on the forest and to increase the 

number of Latinos and young people between the 

ages of 16 and 19.

 The National Visitor Use Monitoring Program 

helps us improve our customer service by tracking 

recreational visits to National Forests and 

Grasslands.

“...to secure for the American people 

of present and future generations the 

benefits of an enduring resource of 

wilderness.”

- 1964 Wilderness Act
FY 2018 Budget Justification USDA Forest Service

National Forest System 81

provides critical information for line officers and managers to protect and preserve these specially designated areas.

In FY 2016, 16 percent (20 of 125) of WSRs managed by the Forest Service or flowing through NFS lands 

successfully met statutory requirements under the national WSR performance measure.14 Planning and active 

management efforts delivered benefits to the public through protection and enhancement of river values such as 

clean water, free-flowing condition, and river-related recreation. The agency is also planning to utilize the 50th 

anniversary of the Wild and Scenic Rivers Act in 2018 as a unique opportunity to both raise public awareness about 

the importance of WSRs and strengthen efforts to manage these valued river resources. 

 

14This drop from 35 percent (43 of 122) accomplishment in FY 2015 was due to changes in Forest Service reporting instructions for the national WSR 

performance measure that are intended to enhance the accuracy of reported information related to river planning requirements under the Wild and Scenic 

Rivers Act. These instructional changes will also help the agency to strategically invest funds in priority WSR work in a manner that will lead to significant 

and sustained improvements in performance measure accomplishments and WSR stewardship efforts in the future.
FY 2018 Budget Justification USDA Forest Service

National Forest System 82

Wildlife and Fisheries Habitat Management

Budget Line Item Wildlife & Fisheries Habitat Management

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Wildlife & Fisheries Habitat Management

Annual Appropriations $140,466 $140,199 $125,000 -$15,199 -11%

Wildlife & Fisheries Habitat Management Total 140,466 140,199 125,000 -15,199 -11%

Annual Appropriations FTEs 749 749 667 -82 -11%

Total Full-Time Equivalents (FTEs) 749 749 667 -82 -11%

Wildlife & Fisheries Habitat Management

Wildlife & Fisheries Habitat Management 140,466 140,199 125,000 -15,199 -11%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Wildlife & Fisheries Habitat Management

Number of watersheds moved to an improved condition class 21 22 19

Acres treated annually to sustain or restore watershed function and 

resilience 3,214,598 2,900,000 2,400,000

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $125,000,000 for the Wildlife and Fisheries program, a decrease of 

$15,199,000 from the FY 2017 Annualized CR (including $290,000 for annualization of the 2017 pay increase and 

$918,000 for the 2018 pay increase), and a decrease of 82 staff years ($140,199,000 and 749 staff years available in 

2017).

The FY 2018 budget request proposes $125,000,000 to work on the most critical aquatic and terrestrial habitats. 

Projects will be designed to benefit multiple species where possible. The funding decrease (-$7,599,500 for aquatic 

habitat; -$7,599,500 for terrestrial habitat) will reduce the number of watersheds targeted for improvement from 22 

watersheds in FY 2017 to 19 in FY 2018, and reduce the targeted number of acres treated to sustain or restore 

watershed function and resilience from 2.9 million in FY 2017 to 2.4 million in FY 2018. 

Program Overview 

The Wildlife & Fisheries Habitat Management program protects, restores, and enhances habitats for wildlife, fish, 

and rare plants for sustainable use and enjoyment by the public. The program improves wildlife and fish habitat; 

range, forest, grassland, and watershed conditions; water quality, quantity, and timing of stream flows; and helps 

offset the impact of drought to critical habitats.

National forests and grasslands provide some of the country’s best remaining habitat for over 420 threatened and 

endangered species, and another 3,100 species listed as sensitive or species of conservation concern by the Forest 

Service and States. In the lower 48 States, National Forest System (NFS) lands contain the majority of habitat left 

for rare, wide-ranging carnivores including the grizzly bear, Canada Lynx, and North American wolverine. They 

also contain some of the Nation’s most economically valuable cold-water fish populations.
FY 2018 Budget Justification USDA Forest Service

National Forest System 83

Restoring and Protecting the Quality of Watersheds through Sustainability

Restoring ecosystems ensures that vital amenities such as 

clean water and recreational opportunities are available to 

society. By keeping aquatic habitats healthy, the agency

protects community water supplies, reducing the need for 

communities to install expensive water treatment 

facilities. 

Healthy watersheds also retain soil, reducing the need for 

communities to fund costly projects to remove sediment 

clogging reservoirs.

National forests and grasslands are most successful when 

ecosystems make watersheds more resilient to ecological 

disturbance, restore and preserve quality fish and wildlife 

habitat, and support plant and animal biodiversity. Robust 

aquatic populations, such as salmon species, also support 

important commercial fisheries making vital contributions 

to local economies. Strong wildlife and fish populations 

are critical in supporting vibrant outfitter and guide industries that help power local economies. 

To be successful, the agency uses an integrated approach to achieve multiple resource objectives, and works at large 

enough scales to restore meaningful ecologic functions. Working at the landscape or watershed scale, and involving 

multiple disciplines and partners is critical when natural resource issues cross land ownership, jurisdiction, and 

community boundaries. The Wildlife and Fish Programs bring together land managers from diverse disciplines 

(biologists, foresters, botanists, ecologists, engineers, etc.) to determine restoration needs using a landscape-scale 

approach. Under this approach, these land managers assess multiple natural resource needs across large geographic 

areas; collaboratively determine priorities for restoration; and identify the resources needed to restore and improve 

the area’s ecological condition.

While the Wildlife and Fisheries Habitat Management program emphasizes landscape-scale restoration, it also 

supports focused, site-specific actions as needed. These may include removing dangers to threatened or endangered 

species, or addressing sediment from washed-out road segments adversely affecting aquatic habitats. 

The program also supports youth engagement and recreation through conservation and education activities such as 

the NatureWatch program. These activities include developing and maintaining permanent wildlife viewing sites, 

providing conservation education, providing viewing opportunities, and the development and sponsorship of local 

and national events such as Kids’ Fishing Day and International Migratory Bird Day programs. There are hundreds 

of other NatureWatch activities implemented that connect people with “all things wild” on the national forests and 

grasslands.

The Wildlife and Fisheries Habitat Management program 

has an extensive network of collaborators and long-term 

partners including Federal and State agencies, Tribal 

governments, nongovernmental organizations, and local 

communities, which help power our program annually. 

Successful partnerships and collaborative efforts have led to 

the restoration 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 our capacity to manage 

habitat 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, civic organizations, and national 

conservation-oriented organizations such as The Nature Conservancy, Trout Unlimited, National Fish and Wildlife 

Foundation, National Forest Foundation, American Rivers, American Fisheries Society, American Sport Fishing 

Hunters, anglers, and wildlife viewers spend $7.7 

billion annually for their activities and equipment used 

for recreation on National Forest System (NFS) lands. 

These expenditures supported 189,000 jobs and $878 

million in Federal income tax receipts in our most 

recent economic analysis.

National Forests Protect Significant Fish and 

Wildlife Habitat

 2 million acres of lakes

 5 million acres of wetlands

 10 million acres of fishable lakes

 425 threatened/endangered species

 220,000 miles of fishable streams

 >28 million acres of wild turkey habitat

 80 percent of all elk, bighorn sheep, and 

mountain goat habitat in the continental U.S.

 50 percent of the Nation’s premier trout and 

salmon habitat

 Over 450 migratory birds nest on National 

Forest lands
FY 2018 Budget Justification USDA Forest Service

National Forest System 84

Association, The Wilderness Society, Rocky Mountain Elk Foundation, Wildlife Forever, Ducks Unlimited, The

Wildlife Society, and the National Wild Turkey Federation. 

Past Performance 

The program’s ecosystem restoration efforts, along with coordinated efforts from other programs, are maintaining 

strong fish and wildlife populations important to the American public. Robust fish and wildlife populations are 

essential to support the economic drivers so important to many local communities. Each year the activities of 

hunters, anglers, and wildlife viewers contribute billions of dollars to local communities and support tens of 

thousands of jobs. 

The agency has increased the number of watersheds improved each year, more than doubling what was achieved as 

recently as FY 2014. From FY 2012 to FY 2016, the Forest Service moved more than 71 watersheds to an improved 

condition class, and has ongoing work in over 150 other priority watersheds. 

In FY 2016, Wildlife and fisheries habitat work improved over 3,800 miles of stream habitat, 39,000 acres of Lake 

Habitat, and enhanced over 2.9 million acres of terrestrial habitat. Overall, the agency completed critical 

conservation actions for over 200 listed threatened and endangered species.

The agency also measures the number of acres treated annually to sustain or restore watershed function and 

resilience. This measure captures the “footprint” of treatments accomplished through many restoration actions and 

programs, including activities supported by other agency programs. For the last three years including FY 2016, the 

agency has accomplished 2.7 to 3.2 million acres of restoration treatments each year. In FY 2016, the Wildlife 

Habitat Management Program continued to significantly contribute to these total acres accomplished, enhancing 

over 1.3 million acres.

Environmental Impacts Are Outpacing Restoration

Under the agency’s Watershed Condition Framework, the condition of the Nation’s watersheds are reevaluated 

every five years to determine if restoration efforts are keeping pace with the impacts of catastrophic environmental 

impacts, such as large scale fires and floods. A reassessment of Forest Service watersheds was completed in FY 

2016. The agency’s integrated restoration efforts have made significant progress, moving more than 71 watersheds 

to an improved condition class. For the first time, 53 percent of agency watersheds are in properly functioning 

condition. 

While restoration efforts continue to improve overall watershed conditions at a national scale, in some parts of the 

country tree mortality, insects, disease, large scale fires, and floods have significantly degraded overall watershed 

conditions, with some regions having more than 50 fewer watersheds in fully functional condition than in 2011 

(when the watershed conditions were last assessed). In these areas, agency restoration efforts have not been keeping 

pace with the environmental impacts of these stressors. The size and severity of fires during an active fire season 

impact the Forest Service’s ability to improve the condition of watersheds. Specifically, large wildfires across 

multiple watersheds can offset the benefits of active restoration occurring in priority watersheds. In FY 2015 alone, 

the most recent year with data about the impacts of the large-scale fires, the agency identified over $182 million in 

post-fire restoration needs. Wildfires create revegetation needs, while at the same time the program is trying to 

provide timber, clean water, pollinator forage, wildlife habitat, safe recreational experiences, and carbon 

sequestration benefits.

Restoring Wildlife Habitat 

The wildlife program continued to restore landscape-scale ecosystem function and re-connect wildlife habitats by 

protecting migration corridors for a host of important species, such as grizzly bear, mule deer, elk, bighorn sheep, 

and sage-grouse. Restoring habitat is crucial for conserving at-risk species and recovering species listed as 

threatened or endangered under the Endangered Species Act.
FY 2018 Budget Justification USDA Forest Service

National Forest System 85

The Forest Service played a critical role in interagency conservation efforts on the sagebrush steppe ecosystem, 

helping restore habitat for the Greater Sage-Grouse and more than 350 other species that depend on the ecosystem. 

Due in part to the work by the Forest Service, the Bureau of Land Management, and many other partners, in 2016 

the Secretary of Interior announced that the Greater Sage-Grouse did not warrant protection under the Endangered 

Species Act.

The Forest Service worked closely with the U.S. Fish and Wildlife Service and State forestry and wildlife resource 

agencies to monitor bat populations in light of the devastating impacts of white-nose syndrome caused by an 

invasive species. Through an interagency effort, the entities developed and published a national protocol for 

monitoring bats - the North American Bat Monitoring Program. 

The agency is continuing to further research efforts to offset the 

effects on critical bat populations. In spite of efforts to stem the 

spread of white nose syndrome, in FY 2016, monitoring efforts 

showed this devastating disease has now expanded to bat 

populations in the West. 

Restoring Rivers and Streams 

Restoring streams improves habitat for threatened, endangered, and 

sensitive aquatic species, as well as habitat for native and nonnative species that communities value for commercial, noncommercial, or recreational purposes. Sometimes, this means 

restoring the ability for fish and other aquatic creatures (such as 

salamanders, frogs, and crayfish) to move upstream or downstream 

under roads. The agency continues to work with a variety of 

partners to improve crossings at road and stream intersections 

(culverts and bridges) for aquatic organism passage. Other 

mechanisms to reconnect waters on and adjacent to NFS lands include redesigning irrigation diversions, removing 

invasive species, and removing old dams. In FY 2016, the agency began a pilot partnership project with American 

Rivers in the southeastern U.S. to prioritize over 2,000 aging dams on Forest Service lands for removal to improve

watershed health, restore habitat connectivity for fish and freshwater mussels, and reduce human safety risk from 

dam failures. 

Conservation Education - Connecting People with Nature

A key component of accomplishing the agency strategic goal of connecting people to the outdoors is achieved 

through Nature Watch programs. In 2016, more than 350 fishing derbies and events were held, reaching an 

estimated 150,000 children and adults in celebration of National Fish and Boating Week. The Nature Watch 

program is one of the most significant ways in which the agency connects people with nature, helping to educate the 

public on the value and importance of NFS lands. 

In FY 2016, external partners helped the agency complete thousands of fish and wildlife projects on national forests 

and grasslands. The Forest Service investment of approximately $16.5 million was matched with the dollar and inkind value of partner contributions totaling over $60 million. The agency continues to build key partnerships with 

Tribal governments and associations –partnerships among Tribes and the Forest Service are growing around salmon 

habitat restoration in the Columbia River and Puget Sound basins, wet meadow restoration in the Sierras, salmon 

monitoring and management for subsistence use in Alaska, and threatened and endangered species management in 

the Southwest.

Engaging the Next Generation

Children learn about Aquatic Species on Forest 

Service Lands. Photo Credit: U.S. Forest 

Service
FY 2018 Budget Justification USDA Forest Service

National Forest System 86

Salmon Harvest Depends on Healthy Forest System Lands

Salmon contribute significantly to Alaska’s economy. Almost half of the pink salmon 

harvested originate from the temperate rain forest streams of the Tongass National Forest in 

Southeast Alaska. The State’s sustainable commercial fishing regulations and the Tongass 

National Forest’s largely healthy watersheds and stream habitat contribute to the production 

of these prolific wild pink salmon populations. Photo Credit: Alaska Region, U.S. Forest 

Service
FY 2018 Budget Justification USDA Forest Service

National Forest System 87

Hazardous Fuels

Budget Line Item Hazardous Fuels

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Hazardous Fuels

Annual Appropriations 0 0 $354,288 $354,288 100%

Hazardous Fuels Total 0 0 354,288 354,288 100%

Annual Appropriations FTEs 0 0 1,715 100 100%

Total Full-Time Equivalents (FTEs) 0 0 1,715 100 100%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Hazardous Fuels

Acres of wildland-urban interface (WUI) high-priority fuels treated 2,016,049 1,800,000 1,710,000 

Acres of Fuels Mitigated on NFS Lands 866,113 1,300,000 1,235,000

NFS acres of fuels mitigated in the WUI 617,919 1,000,000 950,000

Percent of treated acres identified in Community Wildfire Protection 

Plans or equivalent plans. 81.0% 80.0% 80.0%

(1) National Forest System acres of fuels mitigated in the wildland-urban interface is a subset of Acres of Fuels Mitigated on

NFS lands.

(2) The Past Performance narrative below provides detailed information on aspects of program management, strategies, and/or 

improvements in relation to the accomplishments associated with the performance measures.

Note: Prior to FY 2018, Hazardous Fuels was under Wildland Fire Management.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $354,288,000 for the Hazardous Fuels program, a decrease of 

$20,000,000 from the FY 2017 Annualized CR (including $746,000 for annualization of the 2017 pay increase and 

$2,361,000 for the 2018 pay increase) and a decrease of 100 staff years ($374,288,000 and 1,815 staff years 

available in 2017 in the Wildland Fire Management appropriation).

The FY 2018 President’s Budget proposes $354,288,000 to fund priority areas near communities that reduce risk to 

communities and firefighters and increase resilience of forests to catastrophic fire.

The FY 2018 budget requests that the Hazardous Fuels program be moved from the Wildland Fire Management 

program to the National Forest System (NFS) program. As all Hazardous Fuels work takes place on NFS lands, the 

agency will be able to administer this program more efficiently and effectively as part of NFS.

Program Overview

The Hazardous Fuels program reduces high fuel loads in forests and contributes to restoring forest health and 

resilience. Managing hazardous fuels loads is critical to protect the American public, provide for firefighter safety, 

and conserve the Nation’s natural resources. Healthy, resilient landscapes have a greater capacity to adapt to and 

withstand natural disturbances and large-scale threats to sustainability. 

When treating hazardous fuels, the agency uses a wide range of tools including prescribed fire, mechanical fuels 

reduction, and thinning activities. These treatments also provide strategic opportunities to increase the capability to 

manage wildfire for resource benefits. Strategic investments reduce severe wildfire effects in high-risk areas,
FY 2018 Budget Justification USDA Forest Service

National Forest System 88

including those areas disturbed by drought, severe wildfires, or 

uncharacteristically large insect and disease outbreaks. Such 

disturbances cause millions of dollars in damage and limit our 

ability to obtain economically viable products from the forests. 

Reducing long-term risk requires setting priorities, acceptance 

of short-term risk, and greater collective investment.

Many ecosystems are “fire-adapted” and need periodic fire 

disturbance to be healthy and resilient. The Hazardous Fuels 

program reduces fuel buildup, re-introduces fire onto the 

landscape, and increases opportunities for natural ignitions to 

meet land management objectives. 

The agency completes fuels treatment effectiveness 

assessments for every wildfire that starts in, or intersects with, a

fuels treatment area. These assessments show fuels treatments 

modify fire behavior, prevent private property loss, and provide 

a safer working environment for fire management personnel. 

These assessments also help the agency understand the effects 

of hazardous fuels treatments on fire behavior, fire severity, and 

fire suppression effectiveness. The agency is also incorporating 

spatial data for fuels treatments into the Wildland Fire Management Decision Support System, improving data 

availability to help support wildfire incidents and inform risk management decisions. 

The Hazardous Fuels program is a key component of the National Cohesive Wildland Fire Management Strategy 

(Cohesive Strategy). The program contributes to restoring and maintaining resilient landscapes, creating fire adapted 

communities, and improving response to wildfires. Hazardous fuels reduction is often the most effective way to 

protect community values, restore forest and grassland health, improve firefighter and public safety, and prevent the 

need for costly fire response operations. Hazardous fuels management requires skilled workers, whether through 

prescribed fire or mechanical treatments, thus serving as an important source of jobs. 

Past Performance

In FY 2016, the Hazardous Fuels program piloted new performance measures to identify key outcomes of hazardous 

fuels treatments. In addition to acres treated, the agency is reporting: 1) acres where all planned treatments are 

completed and the fuels are in the desired condition relative to risk (acres mitigated); 2) percent of naturally ignited 

wildfire acres that have an ecological or risk benefit; and 3) an index of relative ‘fire risk’ based on the likelihood of 

a large fire negatively impacting highly valued resources. 

Developing desired conditions often requires multiple treatments on the land. To better capture not only where the 

agency is treating acres, but where treatments have achieved desired condition of increased resilience and reduced 

risk, the agency initiated the “acres mitigated measure”. In FY 2016, the agency mitigated hazardous fuels on over 

866,000 acres of NFS lands, including almost 618,000 acres in the wildland-urban interface (WUI). 

In 2016 the agency funded and helped conduct fuels treatments on more than 3.2 million high priority acres 

nationwide, focusing on areas with highly valued resources like communities, areas of high fire potential, and areas 

where the agency could alleviate risk most effectively. 

In 2016, the agency continued evaluating the risk to communities and monitoring the effectiveness of fuels 

treatments to ensure it addressed the highest priority acres where risk could be most effectively reduced. The agency

worked towards an environment where wildland fire management is safer and more effective, and towards creating 

healthy landscapes that help maintain our Nation’s natural resource wealth and provide places for the public to visit. 

Assessments of fuels treatment effectiveness show that 91 percent of treatments were effective in changing fire 

behavior and/or helping to control wildfire in FY 2016. 

Cedar Fire, Sequoia National Forest, California 

(2016)

Fire moved from the untreated area below the road (right) 

into an area treated by thinning and pile burning above the 

road (left). Visual evidence suggests that fire intensity was 

reduced from an active crown fire below the road to 

intermittent crown fire and eventually surface fire as the 

fire continued uphill through the treated area.
FY 2018 Budget Justification USDA Forest Service

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In 2016, the Forest Service field-verified that more than 932,000 acres burned by naturally-ignited wildfires. Fire on 

these lands met land management objectives - they moved ecosystems toward specific desired conditions for forests 

and grasslands. Satellite imagery, burn severity maps, and site-specific data helped to assess the effects of each fire. 

Naturally-ignited wildfires that benefit ecosystems continue to be an important part of the total Hazardous Fuels 

program, and the acres treated each year vary with fire season activity. 

In FY 2016, the agency expanded partnerships with Federal, State, and private partners to reach across boundaries 

and address risk on a landscape scale. For example, the Forest Service and the Natural Resources Conservation 

Service continued the Joint Chiefs’ Landscape Restoration Partnership. In FY 2016, 11 new projects, along with the 

28 projects that began in 2014 and 2015, collaboratively implemented mitigation activities on Federal and nonFederal lands. These reduced wildfire threats to communities and landowners, protected water quality and supply for 

communities and industry, and improved habitat quality for at-risk or ecosystem surrogate species. The agency also 

funded over 90 other projects where risk of wildfire is high, communities are actively engaged, and in some cases, 

merchantable timber volume had been produced. These projects focused on reducing fire risk to communities, but 

also provided benefits to wildlife, water quality, and local economies. 

The agency continues to focus on targeting fuels treatments in those communities that are working to prepare for 

wildland fire, including communities that have a community wildfire protection plan (CWPP) in place. The agency

worked closely with communities to identify their priority areas for treating hazardous fuels. Over 80 percent of the 

WUI acres treated were in areas covered by CWPPs or an equivalent. 

Wood Innovation Grants 

The continued investment in wood energy and wood products is focused on secure, sustainable, renewable energy 

sources; stronger rural economies; and more acres of hazardous fuels treated. Since 2005, this program has awarded 

over $62 million to over 240 grant recipients, including small businesses, non-profits, Tribes, and State agencies. 

In FY 2016, State and Private Forestry awarded over $8.3 million in Wood Innovation Grants to substantially 

expand and accelerate wood energy and wood products markets throughout the United States to support forest 

management needs on NFS and other forest lands. These Federal funds leveraged over $18 million in partner 

investments resulting in a total investment of over $26 million. 

The 2016 establishment of 22 Statewide Wood Energy Teams and six Statewide Wood Utilization Teams helped 

identify and promote wood utilization opportunities across the country. This model is increasing the number and 

diversity of organizations across all public and private sectors to promote these critical markets. For example, since

the California Forest Biomass Working group established a Statewide Wood Energy Team, meeting participation in 

the working group increased by 70 percent. The Working Group has members from government agencies, 

businesses, non-profits, Tribes, and other organizations that help promote wood utilization opportunities. 

Another Forest Service initiative has been supporting the introduction of cross-laminated timber (CLT) into the 

domestic marketplace. The Forest Service has helped companies assess the feasibility of producing CLT; supports 

architects, engineers, and developers to learn how to use CLT; and helped launch a successful national Tall Wood 

Building Prize Competition. In 2015, two competition winners were announced: a 10-story condominium in New 

York City, and a 12-story mixed-use building in Portland, Oregon. All of these actions are contributing to increased 

use of CLT as a building material in the domestic commercial building market. Since 2015, there has been 

nationwide interest in mass timber technologies, including CLT. Work is currently being done to examine building 

codes changes for tall wood buildings; determine the blast resistance of CLT for the Department of Defense 

applications; and examine how to use more beetle-kill material in the CLT panels, among other activities. 

Wood Energy and Building with Wood

The Hazardous Fuels program funds grants through the Wood Innovations Grant Program. Since FY 2005, the 

Hazardous Fuels program has provided funding to help build capacity for biomass utilization in support of fuels 

reduction and landscape restoration. In FY 2016, over $8.3 million was awarded to fund 41 proposals, resulting in a 

leveraging of over $18 million. In FY 2015, over $9 million was awarded, resulting in a leveraging of over $26 
FY 2018 Budget Justification USDA Forest Service

National Forest System 90

million. The agency coordinated this funding with USDA Rural Development programs, increasing overall 

investments. Using biomass residues from hazardous fuels treatments for renewable energy increases national 

energy security, reduces energy costs, and improves rural economic vitality and air quality. Expanding markets and 

demand for innovative wood building products, like CLT, can increase market value and offset hazardous fuels 

treatment costs. 
FY 2018 Budget Justification USDA Forest Service

National Forest System 91

Grazing Management

Budget Line Item Grazing Management

(dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Grazing Management

Annual Appropriations $56,856 $56,748 $50,600 -$6,148 -11%

Grazing Management Total 56,856 56,748 50,600 -6,148 -11%

Annual Appropriations FTEs 428 428 381 -47 -11%

Total Full-Time Equivalents (FTEs) 428 428 381 -47 -11%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Grazing Management

Allotment acres administered to 100% of Forest Plan standards 29,711,012 27,000,000 24,000,000

Number of grazing allotments with signed decision notices 52 100 90

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $50,600,000 for the Grazing Management program, a decrease of 

$6,148,000 from the FY 2017 Annualized CR (including $166,000 for annualization of the 2017 pay increase and 

$525,000 for the 2018 pay increase) and a decrease of 47 staff years ($56,748,000 and 428 staff years available in 

2017).

The FY 2018 budget request proposes $50,600,000 to maintain the administration of grazing permits and the 

completion of the National Environmental Policy Act decisions at slightly reduced levels from FY 2017. The agency 

will continue to invest in restoration and management of rangelands to be resilient to threats such as insects, 

drought, and disease, and to support livestock grazing and strong rural communities.

Program Overview 

The Grazing Management program maintains and restores 

rangelands that are healthy and resilient, while also supporting 

rural ranchers and farmers who rely on these lands for their 

livelihoods. The program manages diverse landscapes on 

approximately 100 million acres of National Forest System (NFS) 

lands, and administers grazing use on approximately 10 million 

acres of private land. The program supports rural communities, 

maintains a sustainable supply of forage for livestock, and also 

protects open space and wildlife habitat. Proper management of 

grazing use was one of the core reasons for the establishment of forest reserves that eventually became the NFS.

Development and implementation of proper grazing practices and the protection and stewardship of rangeland 

resources remains a significant focus in managing these public lands. 

The Grazing Management program manages 

nearly 6,000 permits held by ranchers and 

farmers across 29 states. Livestock grazing 

on NFS lands contributes, on average, over 

14,000 jobs and $706 million to the Nation’s 

economy each year.
FY 2018 Budget Justification USDA Forest Service

National Forest System 92

Properly managed rangelands provide secure sources of food and water, and provide wildlife habitat and other 

natural resources benefits. Under the National Environmental Policy Act (NEPA), the agency conducts

environmental planning to inform grazing allotment and permit administration. Decisions based on thorough NEPA 

analyses ensure that livestock grazing strategies provide for the restoration and long-term health of rangelands,

while continuing to provide essential goods (like quality grazing fodder) and ecosystem services (like healthy soil, 

clean water, and wildlife habitat). The program 

incorporates adaptive management —an iterative 

process using lessons learned to improve long-run 

management outcomes — into grazing NEPA 

decisions, which provides flexibility for the permit 

holders while ensuring the agency meets desired 

environmental conditions. This supports ecosystem 

improvement by properly adapting timing and use of 

rangeland grazing to meet the agency supports the 

ranching community while continuing to protect the 

long-term ability of public rangelands to provide 

resource benefits.

National forests and grasslands establish 

management standards for grazing in their land 

management plans, and administer permits to meet 

those standards. By administering grazing permits in 

compliance with these standards, the agency ensures 

that grazing on NFS lands provides for secure food 

sources while being managed for ecosystem 

resilience, and that water resources associated with grazing allotments are managed for sustained quality and 

quantity. Allotment administration also assures that management decisions identified during the NEPA process are 

implemented, achieve desired outcomes, or are adjusted if initial actions are not effective. 

Past Performance 

An important part of maintaining and restoring rangelands is conducting thorough NEPA analyses on grazing 

allotments. Completion of the NEPA analysis—and the resulting signed decisions—gives the agency a path forward 

to manage the land as needed to meet the forest plan standards, including the needs of local communities.

With the complexity of NEPA analyses, it is crucial to build partnerships with the many stakeholders interested in 

rangeland management, including permit holders, non-profit groups, and Federal, State, local and Tribal agencies. 

Partnerships can build trust between different groups. This can take time and effort, but also leads to mutual 

understanding. By collaborating with stakeholders, the agency can find common ground on solutions to range 

management issues, and may help reduce the chances of 

litigation challenges to the NEPA analyses. Some 

partnerships even help fund Forest Service work, and help 

the agency obtain comprehensive data to support decisions. 

Collaborative working relationships are critical to the longterm success of range management programs. 

Forests across the country have made significant strides in 

leveraging funds and partnerships using Environmental 

Quality Incentive Program funds from the Natural 

Resources Conservation Service in cooperation with agency

permit holders to fund rangeland habitat and structural 

range improvements. These projects are able to achieve 

multiple resource benefits while bolstering the ability to 

build and maintain structural improvements such as fences.

Some forests are effectively using state wildlife agency funds for grassland habitat improvement projects. Forests 

The Diversity of Rangelands

Rangelands are diverse – from the wet grasslands of Florida and 

the desert shrub ecosystems of Wyoming, to the high mountain 

meadows of Utah and the desert floor of California. Photo 

Credit: Forest Service Rangelands Program

Local Partners Help Manage Grazing

The Hector Grazing Association helps manage grazing 

on the Finger Lakes National Forest in New York. Photo 

Credit: Forest Service
FY 2018 Budget Justification USDA Forest Service

National Forest System 93

are also partnering in joint monitoring efforts. Additionally, the agency is implementing efficiencies, like combining 

multiple allotments into one large decision where feasible.

In 2016, the agency continued to place emphasis on administering allotment acres to forest plan standards, a key 

performance measure to ensure healthy rangelands. Maintaining a focus on monitoring and on-the-ground 

administration resulted in the program continuing to meet expectations for these activities. 
FY 2018 Budget Justification USDA Forest Service

National Forest System 94

Forest Products

Budget Line Item Forest Products

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Products

Annual Appropriations $359,805 $359,121 $359,121 0 0%

Forest Products Total 359,805 359,121 359,121 0 0%

Annual Appropriations FTEs 2,485 2,485 2,480 -5 -0%

Total Full-Time Equivalents (FTEs) 2,485 2,485 2,480 -5 -0%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Forest Products

Number of watersheds moved to an improved condition class 21 22 19

Acres treated annually to sustain or restore watershed function and 

resilience 3,214,598 2,900,000 2,400,000

Volume of timber sold (million board feet (MMBF)) 2,942 3,200 3,200

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $359,121,000 for the Forest Products program, the same level as the FY 

2017 Annualized CR (including $1,079,000 for annualization of the 2017 pay increase and $3,414,000 for the 2018 

pay increase) and a decrease of five staff years ($359,121,000 and 2,485 staff years available in 2017).

The FY 2018 budget request proposes $359,121,000 to support jobs, contribute to local economies, and create 

healthy landscapes and communities. In FY 2018, the agency has set a target of a total volume sold of 3.2 billion 

board feet. To meet this goal, the Forest Service is also using key authorities from the Agricultural Act of 2014 to 

address insect and disease issues, emphasizing using the timber sale pipeline 

authority to increase the volume of timber prepared for future sales, and 

working to align our timber offerings with current market conditions.

Program Overview 

The Forest Products program is a key part of the agency’s integrated 

restoration efforts to create healthy, resilient landscapes, and communities. 

It also provides associated jobs and economic benefits. Forest products 

include timber, pulpwood, biomass, firewood, Christmas trees, seeds, and 

other products harvested for commercial uses, personal subsistence, and 

Tribal practices. Timber sales are an important tool for accomplishing 

resource management objectives on National Forest System (NFS) lands in 

an ecologically and economically efficient manner while generating revenue 

to offset the costs of implementation. Stewardship contracting, also funded 

within this program, received permanent authority in the Agricultural Act of 2014 (2014 Farm Bill). By using the 

value of forest products to offset the cost of services, stewardship contracting is an effective means to restore land 

and natural resources while promoting a closer working relationship with local communities. Funding for the 

program is used to plan and prepare timber sales, complete analyses under the National Environmental Policy Act 

(NEPA), and implement and administer sales using contracts, agreements, and permits.

Forest Products are:

 Timber 

 Pulpwood 

 Biomass 

 Firewood 

 Christmas trees

 Seeds 

 Other products 

harvested for 

commercial, personal 

subsistence, and 

Tribal practices. 
FY 2018 Budget Justification USDA Forest Service

National Forest System 95

Timber sales and stewardship projects can both reduce the density of trees and change the type of trees in the forest. 

This can improve the vigor and health of forests, and improve wildlife habitat for multiple species. Additionally, 

timber sales and stewardship contracts can help with multiple goals, including restoring large-scale watersheds by 

reducing fuels that create an unacceptable fire risk, recovering timber value following natural disturbances, and 

preparing sites for vegetation to regenerate. Timber sales and stewardship contracts can also be used to reduce insect 

and disease infestations, improve resilience to drought, and improve tree growth to produce desirable timber 

products in the future.

The suite of activities associated with timber sales and stewardship 

contracting provides employment opportunities for sustaining local 

communities while providing a wide variety of forest products for 

industry and the public. In FY 2016, the Forest Service served the 

public with over 260,000 forest product permits from over 1,000 timber 

sale or stewardship contracts with a value of just over $186 million. The 

program is critical to local economies, generating over 43,000 jobs and 

about $3.2 billion of gross domestic product in our most recent 

economic analysis. With the help of Research and Development, the 

Forest Products Laboratory, and industry partners, the agency continues 

to explore methods to use forest product outputs for a wide variety of value-added products, including new 

engineered wood products being used in tall buildings.

Past Performance 

Helping Sustain Local Economic Activity

In FY 2016, the Forest Service approved over 260,000 forest permits from over 1,000 timber sale or stewardship 

contracts with a value of just over $186 million. The program helps sustain local economics, generating over 43,000 

jobs and about $3.2 billion of gross domestic products in our most recent economic analysis.

Measuring Restoration Outcomes 

In FY 2016, the agency accelerated restoration work toward achieving a timber output level of 3.2 billion board 

feet—a challenging level last achieved in the late 1990’s. Several challenges prevented the agency from reaching its

goal, including a number of timber sales which received no bids, challenging market conditions in some regions, and 

NEPA and litigation delays in other regions—driving a final result of 2.94 billion board feet of timber sold. To 

deliver higher outputs, the agency has recruited and developed a skilled workforce, made use of planning 

efficiencies authorized by Congress, improved scheduling of timber sales, and invested in technology.

Optimizing Our Workforce

One key focus of the program has been rebuilding workforce capacity - hiring and training additional timber sale 

administrators and other needed specialists, such as silviculturists, to increase capacity to plan and implement 

projects. Because it can take a considerable amount of time to fully train new employees, the agency also improved 

the flexibility of its existing workforce, and leveraged experienced personnel within and across regions. For 

example, the Northern Region set up a “strike team” to work on projects across the region. The strike team assisted 

the Uinta-Wasatch-Cache National Forest in the Intermountain Region to implement a salvage sale that would not 

otherwise have been completed last year.

Using Farm Bill Authorities 

The Forest Service is also using authorities provided in the 2014 Farm Bill. The Good Neighbor Authority, which 

allows States to restore watersheds and manage forests on NFS lands via agreements or contracts, was permanently 

authorized in the 2014 Farm Bill. In FY 2016, Wisconsin became the first state to sell and administer timber sales on 

a National Forest (Chequamegon-Nicolet) using this permanent authority. Stewardship contracting continues to be 

an important tool. Finally, by using “designation by prescription,” the Forest Service is conducting timber sales 

Benefits of Forest Products

 1,000 Timber Sale and 

Stewardship Contracts, worth 

over $186 million 

 43,000 jobs created

 Contributes $3.2 billion dollars 

to the Nation’s economy
FY 2018 Budget Justification USDA Forest Service

National Forest System 96

more efficiently. Traditionally, the Forest Service marks trees individually for harvest by a contractor. With 

designation by prescription, the Forest Service defines the ecological goal of the restoration work (e.g., the 

prescription) and the contractor may decide the best way to achieve the desired end results. The contractor decides 

which trees to harvest, and the Forest Service does not have to mark individual trees before the timber sale, saving 

the agency time and labor costs. 

Improving Timber Sale Offers

The agency is also improving the schedule of timber sales. Because it takes a long time to plan and prepare sales for 

bids, the majority of timber sales are offered in the fourth quarter of the year. By spreading out sales over the year, 

the agency increases the chance of receiving more bids. The Eastern Region maintained a steady flow of sales for 

the entire fiscal year, avoiding market saturation. The Southern Region set a goal to offer 75 percent of timber sale 

volume before the fourth quarter and implemented a strategy to achieve that while increasing their output over the 

last year. 

The agency is also using technology to make timber sales more efficient. When planning a timber sale, staff does a 

timber “cruise”—a sample measurement to estimate the amount of standing timber volume. The agency has reengineered the software used for timber cruises, adding many new features requested by users to make data entry 

more efficient. It expanded the use of handheld computers in timber cruising, which can save up to 30 percent on the 

cost of doing a timber cruise. The agency also invested in using Global Positioning Systems, which can quickly and 

accurately determine which acreage should be treated under a contract. 
FY 2018 Budget Justification USDA Forest Service

National Forest System 97

Vegetation and Watershed Management

Budget Line Item Vegetation & Watershed Management

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Vegetation & Watershed Management

Annual Appropriations $184,716 $184,365 $174,400 -$9,965 -5%

Vegetation & Watershed Management Total 184,716 184,365 174,400 -9,965 -5%

Annual Appropriations FTEs 829 829 783 -46 -6%

Total Full-Time Equivalents (FTEs) 829 829 783 -46 -6%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Vegetation & Watershed Management

Number of watersheds moved to an improved condition class 21 22 19

Acres treated annually to sustain or restore watershed function and 

resilience 3,214,598 2,900,000 2,400,000

Miles of stream habitat restored or enhanced 3,832 3,450 3,070

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $174,400,000 for the Vegetation and Watershed Management program, a 

net decrease of $9,965,000 from the FY 2017 Annualized CR (including $341,000 for annualization of the 2017 pay 

increase and $1,078,000 for the 2018 pay increase), and a decrease of 46 staff years ($184,365,000 and 829 staff 

years available in 2017).

The FY 2018 budget request proposes $174,000,000 for priority timber stand improvement projects and critical 

post-wildfire restoration work that reduces hazardous fuels and the potential for severe flooding and erosion on 

National Forest System (NFS) lands. The reduction is expected to reduce the number of watersheds moved to an 

improved condition class from 21 to 19. 

Program Overview 

The Vegetation and Watershed Management program is a cornerstone of forest and rangeland restoration and 

enhancement activities on NFS lands. The program funds restoration-related management activities and 

accomplishes program objectives by working closely with other NFS programs and our partners. Benefits include 

improved wildlife, fish and plant habitats; improved rangeland and forest conditions; healthier soils; improved water 

quality, quantity, and timing of stream flows; cleaner air; and more effective, long-term carbon sequestration.

National forests and grasslands are most successful when restoration improves the resilience of ecosystems, restores 

and conserves quality fisheries and wildlife habitat, and maintains the biodiversity of plant and animal communities. 

Managing for resilient landscapes ensures vital products and amenities, such as clean water, pollinator services, and 

recreational opportunities, are available to society. Timely reforestation and revegetation following high intensity 

wildfire is also important to maintain healthy forest and grassland ecosystems. The Vegetation and Watershed 

Management programs address basic physical and biological resources on the landscape, providing the foundation 

for healthy, viable ecosystems and multiple benefits to the public. 
FY 2018 Budget Justification USDA Forest Service

National Forest System 98

Successful ecosystem restoration requires an integrated approach to 

achieve multiple resource objectives at scales that are meaningful 

to ecologic function and economic and social expectations. 

Working at the landscape or watershed scale, and involving 

multiple disciplines and partners, is critical in systems where 

boundaries based on land ownership, jurisdiction, and community 

interest are superimposed onto natural systems. Partnerships bolster 

landscape restoration efforts that ensure the agency continues to 

provide ecosystem services such as clean water from NFS lands—

which provide the drinking water supply for approximately onefifth of U.S. communities. 

While the Vegetation and Watershed Management program 

emphasizes landscape-scale restoration, it also supports focused, 

site-specific actions as needed. These may include actions such as 

addressing an outbreak of an invasive species before it can spread 

or addressing sediment from washed-out road segments adversely 

affecting aquatic habitats. 

Watershed management programs directly improve forest and 

rangeland health by restoring watershed conditions, such as 

reducing soil erosion and surface runoff, preventing the loss of 

topsoil, improving soils, and rehabilitating degraded lands. 

Watershed management also includes reforestation and timber stand improvement treatments. These treatments 

support ecosystem management needs by protecting soil and water resources, providing habitat for desired species, 

and improving forest health. Reforestation includes treatments such as seeding, planting, and preparing sites to 

encourage natural regeneration. Timber stand improvement activities include treatments to remove competing 

vegetation; pre-commercial thinning to regulate stand density, 

composition, and structure; pruning treatments to improve future 

product quality; and fertilization treatments that provide for 

maintaining and improving soil productivity.

The primary focus of the Vegetation Ecology sub-program is on 

terrestrial ecosystems. Mapping, describing, and assessing the health 

of ecological systems provides foundational information for landscape 

planning and other activities that occur on NFS lands. Through the 

Vegetation Ecology program, invasive species, both terrestrial and 

aquatic, are managed, soil function and carbon storage are retained and improved, and native plant resources are 

developed, produced, and utilized. Pollinator services critical to the survival of the majority of native and 

agriculturally important plants are improved through the restoration of pollinator habitat. 

The agency’s rangeland resources, from understory lands in forested areas to open meadows and grasslands, are also 

managed under this program. Rangelands are managed to provide public uses and products for both rural and urban

populations, in addition to maintaining valuable open space. Rangeland improvements are accomplished through 

seeding and planting of native plant species, removal of encroaching shrub and tree vegetation, management of wild 

horse and burro populations, and maintenance or enhancement of riparian and upland environments. 

Air resource programs are managed to protect sensitive areas from air pollution effects and to mitigate the effects of 

management activities. The program also helps manage smoke during prescribed burns, and monitors the impacts of 

smoke from large wildfires, alerting communities in advance. The Forest Service operates a national monitoring 

network for air quality related values which includes visibility, aerosol sampling, lake and stream chemistry, lichen 

sampling, deposition, vegetation damage plots, and meteorological conditions.

Forests Are Key Sources of Drinking 

Water

More than half of the Nation’s surface 

freshwater flows from public and private forest 

lands, and about 60 million Americans rely on 

drinking water that originates on the national 

forests and grasslands. Forest Service land 

management, combined with Forest Service 

assistance to private landowners, helps protect 

the single greatest source of drinking water in 

the Nation. Photo Credit: Forest Service 

Working at the landscape scale, and 

involving multiple disciplines and 

partners, is critical to addressing natural 

resource issues that cross land 

ownership jurisdictions and address 

many community interests.
FY 2018 Budget Justification USDA Forest Service

National Forest System 99

Measuring effectiveness

The Vegetation and Watershed Programs use the agency’s Watershed 

Condition Framework to assess success in protecting water resources. The 

framework determines watershed conditions, identifies priorities for 

watershed restoration, and determines if restoration activities are keeping 

pace with large-scale environmental impacts such as fires or floods.

How Resilient Ecosystems Benefit Communities

Resilient aquatic ecosystems help provide clean water to communities. By 

keeping aquatic habitats healthy, the agency protects community water 

supplies, reducing the need for communities to install expensive water 

treatment facilities. Healthy watersheds also retain soil, reducing the need 

for communities to fund costly projects to remove sediment clogging 

reservoirs. Resilient forests and grasslands provide pollination services to 

local fruit and vegetable growers; are more resistant to insect infestations; 

drought, and fire; and provide natural environments for a multitude of 

recreational activities.

Restoration work itself also supports jobs in communities where 

employment opportunities are often limited. Local contractors are hired to 

complete restoration work like replanting trees, treating invasive species, 

re-establishing native vegetation, reducing sediment from roads, improving 

aquatic organism passage/stream crossings, reducing fuel loads, and 

improving fish and wildlife habitat.

Past Performance

The Forest Service is changing how it operates and how it thinks about 

restoration. FY 2016 marked the fifth year of the Integrated Resource 

Restoration (IRR) program piloted in Regions 1, 3, and 4. The agency 

continued to build on the lessons learned from the IRR pilot: more 

effectively integrating efforts among different programs, working across 

Federal/State/local/Tribal boundaries, using the best available science, and 

increasing collaboration with partners in all regions. 

Measuring Restoration Outcomes 

The primary outcome measure used as a benchmark for IRR efforts is the 

number of watersheds moved to an improved condition class as determined 

by the Watershed Condition Framework. Moving to an improved condition 

class means that ecological processes are less at risk and are more 

functional. The annual result is not only reflective of work implemented 

that year, but represents the culmination of integrated watershed-based 

work that started once a restoration action plan was developed. The agency has increased the number of watersheds 

improved, nearly doubling the achievement rate. From FY 2012 to FY 2016, the Forest Service moved 71

watersheds to an improved condition class. 

Environmental Impacts Are Outpacing Restoration

Under the Watershed Condition Framework, the condition of our Nation’s watersheds are reevaluated every five 

years to determine if the outcome of agency restoration efforts are keeping pace with the impacts of catastrophic 

environmental impacts, such as large scale fires and floods. This reassessment of Forest Service watersheds was 

completed in FY 2016. Integrated restoration efforts have made significant progress, moving 71 watersheds to an 

Watershed Condition 

Framework

This framework is a systematic 

process to determine watershed 

condition class. It is now applied 

consistently on all National Forests. 

This framework is a comprehensive 

approach for: (1) evaluating the 

condition of watersheds, (2) 

prioritizing work in areas important 

to the public, and areas where work 

results in noticeable differences in 

watershed condition, and (3) 

tracking and monitoring outcomes.

The Framework classifies 

watersheds using a core set of 12 

indicators. These indicators classify 

watershed conditions, identify issues 

that must be addressed to maintain a 

watershed’s condition class (or 

move it to an improved condition 

class), and track what aspects have 

changed over time that influence a 

watershed’s condition. 

Under Step A, the agency classified 

15,000 watersheds in 2011. In FY 

2016, the agency reassessed 

watersheds to determine the trend in 

conditions over time, focusing on 

those where significant changes had 

occurred since the initial 
FY 2018 Budget Justification USDA Forest Service

National Forest System 100

improved condition class. Since FY 2011, the results of the reassessment show that nationally there are 78 fewer 

fully functioning watersheds than there were in 2010, even with advancements in watershed restoration. Restoration 

efforts have not been keeping pace with the environmental impacts of fires. In FY 2015 alone, the most recent year 

with data of the impacts of the large-scale fires, the agency identified over $182 million in post-restoration needs. 

Some ecosystems will not regenerate naturally after wildfires, and the Forest Service’s revegetation workload is 

growing due to this damage. Simultaneously, the Forest Service is trying to provide timber, clean water, pollinator 

forage, wildlife habitat, safe recreational experiences, and carbon sequestration benefits.

The agency also measures the number of acres treated annually to sustain or restore watershed function and 

resilience. This measure captures the “footprint” of treatments accomplished through many restoration actions and 

programs, including activities supported by other agencies programs. For the last three years, including FY 2016, the 

agency has accomplished 2.7 to 3.1 million acres of restoration treatments each year. In FY 2016, the Vegetation 

and Watershed Programs continued to significantly contribute to these total acres accomplished, enhancing over 1.1 

million acres, including establishing nearly 37,000 acres of forest vegetation, improving nearly 100,000 acres of 

forest vegetation, improving over 216,000 acres for soil erosion and water quality, improving over 560,000 acres of 

rangeland vegetation, and treating nearly 230,000 acres for invasive plant species.

To further enhance the ability to measure restoration outcomes in the near future, the Forest Service has developed 

and is testing the Terrestrial Condition Assessment. Similar to the watershed condition framework, this assessment 

tool uses a set of metrics that can be applied nationally to more accurately assess terrestrial conditions, help identify 

terrestrial restoration priorities, and track trends in conditions over time. 

To further enhance water quality, the Forest Service monitored implementation and effectiveness of Best 

Management Practices (BMPs) to protect water quality for over 600 activities. To accomplish the strategic objective 

of providing abundant clean water, the Forest Service uses water quality BMPs to protect and maintain water 

resources on NFS lands. The BMPs, applied by all Forest Service programs producing ground disturbing activities, 

are specific practices or actions used to reduce or control impacts to water bodies from nonpoint sources of 

pollution, most commonly by reducing the loading of pollutants, such as sediment, from such sources into storm 

water and waterways. The BMP evaluations help us determine if BMPs were planned, implemented, and effective at 

meeting water resource objectives, and are critical to improving practices in the future. This is the first systematic 

approach to BMP implementation across all national forests and grasslands, and the first comprehensive approach to 

BMP implementation for the diverse range of activities that occur on national forests and grasslands.

FY 2016 Partnership Highlights

The Forest Service played a critical role in interagency conservation efforts within the sagebrush ecosystem in the 

intermountain west, helping restore habitat for the Greater Sage-Grouse and more than 350 other species that depend 

on the ecosystem. Much of this work will be completed through the Vegetation and Watershed Programs with 

restoration efforts focused on restoring native vegetation, aggressively treating invasive species, reducing the risk of 

wildfires, and improving rangeland habitat. Due in part to the work by the Forest Service, Bureau of Land 

Management, and many other partners, the Secretary of Interior announced that the Greater Sage-Grouse did not 

warrant protection under the Endangered Species Act.

The agency also continued to improve habitat conditions for pollinators, which are critical for maintaining 

vegetation on public and adjacent private lands, through a collaborative partnership with other agencies and the 

National Fish and Wildlife Foundation. The agency leveraged investments to support grants, which were matched by 

more than $6.7 million in grantee contributions to support the restoration of up to 33,000 acres of habitat in areas 

identified by experts as key to monarch recovery.

The Forest Service has also entered into partnership agreements with several organizations and businesses to 

increase the amount of NFS lands receiving reforestation treatments following wildfires and other natural events. 

These partnerships have increased the agency’s capacity to conduct restoration through sizeable contributions of 

matching funds and in-kind support from external partners.
FY 2018 Budget Justification USDA Forest Service

National Forest System 101

Minerals and Geology Management

Budget Line Item Minerals and Geology Management

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Minerals and Geology Management

Annual Appropriations $76,423 $76,278 $68,000 -$8,278 -11%

Minerals and Geology Management Total 76,423 76,278 68,000 -8,278 -11%

Annual Appropriations FTEs 461 461 410 -51 -11%

Total Full-Time Equivalents (FTEs) 461 461 410 -51 -11%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Minerals and Geology Management

Number of mineral operations administered 13,519 10,000 8,750

Number of mineral applications processed 9,424 7,000 5,250

Number of leasable energy minerals actions processed. 129 250 219

Number of AML safety risk features mitigated to "no further action" 464 432 432

Number of administrative units where audits were conducted 20 17 17

Number of contaminated sites mitigated 49 42 42

Number of geologic hazards managed 283 300 300

Number of geologic resources managed 716 650 650

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $68,000,000 for the Minerals and Geology Management program, a net 

decrease of $8,278,000 from the FY 2017 Annualized CR (including $179,000 for annualization of the 2017 pay 

increase and $564,000 for the 2018 pay increase), and a decrease of 51 staff years ($76,278,000 and 461 staff years 

available in 2017).

The FY 2018 budget request proposes $68,000,000 to support priority mineral applications and critical mineral 

operations that assist operators to meet standards of operating plans. The reductions ($5,000,000 for processing 

mineral applications and $3,278,000 for administering mineral operations) could result in fewer applications and 

leasable energy mineral actions being processed, and mineral operations being administered.

Program Overview

The Minerals and Geology Management program manages energy and mineral development on National Forest 

System (NFS) lands in an ecologically sustainable manner. The program secures and protects unique resources, such 

as fossils, caves, groundwater, wildlife habitat, and places of scientific, cultural, and recreational interest; protects 

people and the environment by monitoring and mitigating geologic hazards like landslides; and cleans, restores, and 

monitors environmentally compromised lands contaminated by mines or other hazards. The program also oversees 

paleontological resources (fossils), and over 2,200 caves found on NFS lands. 
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National Forest System 102

The Minerals and Geology Management program works with State and local partners to manage inspection, 

oversight, and monitoring of approved mineral operations on NFS lands. The program reviews plans for proposed 

mineral activities, including mining for hard rock minerals, 

coal, oil, gas, and geothermal resources, and production and 

contracts to extract materials such as sand and gravel. The 

Minerals and Geology Management program contributes to 

jobs, the economy, and the environment.

Benefits of Minerals and Energy on NFS lands

NFS lands produce enough energy annually to power nearly 

eight million homes for a year, and mineral and energy 

production contribute almost $8 billion to the Nation’s 

economy. More than half a billion dollars go to counties, 

States, and the Treasury while supporting approximately 

56,000 jobs - often in rural communities where jobs are 

needed most. Every appropriated dollar invested in leasable 

minerals, such as oil, gas, and coal, returns about seven 

dollars to the Treasury.

There are five types of energy and mineral production on NFS lands:

 oil, gas, coal, and geothermal energy from federally-owned minerals underlying NFS land;

 oil, gas, and other mineral production from privately-owned energy and mineral rights underlying NFS 

lands;

 solid non-energy minerals including phosphate, lead, zinc, and copper;

 construction materials like sand and gravel, sold to private industry or provided to other government 

agencies for nearby projects (which helps to avoid the cost and environmental impacts of material 

transport); and

 highly valued minerals such as gold, silver, cooper, and lead zinc.

Leasable and Locatable Resources

Leasable resources on Federal land include oil, gas, coal, geothermal 

resources, phosphate, sodium, and carbon dioxide. Leasable mineral 

and energy production from NFS lands significantly contribute to the 

fundamental materials necessary to the functioning of modern 

society. Developing oil and gas leases on NFS lands provides 

substantial energy for the Nation and provides significant economic 

contributions to rural communities.

Locatable minerals include gold, silver, lead, copper, zinc, iron, 

molybdenum, tungsten, nickel, platinum, uranium, and rare earth 

elements, and are subject to the Mining Act of 1872. Every 

American citizen has a right to stake a claim and mine these 

materials subject to Federal, State, and local regulations. Forest 

Service regulations require a Plan of Operations for such claims, 

including plans for reclaiming the mine site.

Many commodities essential to modern life are sourced from NFS 

lands under the Minerals and Geology Management program, 

including precious metals; industrial minerals; and common 

materials used for agricultural supply, construction, and landscaping. 

Below are some examples of minerals extracted from NFS lands and 

their uses.

Geothermal Power from National Forest 

Lands

In FY 2016, geothermal resource development on 

NFS lands contributed to generation of over 

359,000 megawatts of electricity, valued at over 

$22.3 million. Photo Credit: Forest Service 

Forest Service Energy ProductionFacts and Figures

 5.6 million acres underlying NFS lands 

are currently leased for oil, gas, coal, and 

geothermal operations.

 46 million tons of coal were produced 

from NFS lands in FY 2015 (25 percent 

of U.S. coal production).

 The amount of geothermal energy 

produced on NFS lands in FY 2015 is 

enough to power 35,000 homes. 

 Mineral development from Federal leases 

on NFS lands alone provided over $885 

million in revenue through royalties and 

other payments to the U.S. Treasury 

($402 million from coal, $465 million 

from oil and gas, and $18 million from 

other leasable mineral commodities).

 $1.6 billion worth of products were 

produced by the eight largest mines on 

NFS lands in FY 2015. (See Commodity 

and Uses table below for examples of 

products.)
FY 2018 Budget Justification USDA Forest Service

National Forest System 103

Commodity Uses

Cinders Road Construction, Abrasives, landscape materials

Copper Conduit, electrical wire, motors, circuit boards, cell phones, Global Positioning Systems (GPS) 

devices

Gold Jewelry, wiring electronics, computer components, aerospace industry, cell phones, GPS devices

Gravel Railroad ballast, road construction, aggregate for asphalt, and aggregate for concrete production 

Iron Machine tools, automobiles, hulls of large ships, machine and building parts, surgical equipment

Lead Automobile industry, electrodes, solder, radiation shielding, car batteries

Limestone Portland cement, paint, food additives, aggregate, landscape materials

Molybdenum Armor, aircraft parts, industrial motors, filaments and electrical contacts, lubricant, agriculture, 

spark plugs

Nickel Stainless steel, armor plating, ceramics, magnets

Palladium Jewelry, surgical instruments, dentistry, spark plugs, blood glucose strips, GPS devices

Phosphates Lawn fertilizers, toothpaste, and chemicals (weed control)

Platinum Oxygen sensors, catalytic converters, jewelry 

Pumice Lightweight concrete production, abrasives, horticulture, landscaping materials

Sand Building materials, landscaping material, abrasives

Silica Paints, plastics, rubber, glass, optics

Silver Jewelry, photographic uses, electronics, GPS devices

Sodium Food, road deicer 

Stone Building materials, decorative stone, walls, paver stones

Tungsten Fluorescent lighting, high-speed tools, dental drills

Zinc Alkaline batteries, fire retardant, wood preservative, sunscreen, GPS devices

Environmental Safety and Restoration 

Abandoned mine lands pose a variety of physical and environmental threats. If left unaddressed, abandoned mines 

can contaminate soil, pollute water, destroy habitat, destabilize 

land, release hazardous gases and industrial waste, and create 

physical hazards such as dangerous holes. Some of these hazards 

are often located near populated areas, including schools and 

recreational destinations, and in sensitive ecosystems. There may 

be as many as 39,000 abandoned mines on NFS lands, and many 

more on other public lands.

The Minerals and Geology Management program inventories, 

assesses, and mitigates 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, and equipment. Wherever 

feasible, work in this activity minimizes or mitigates adverse 

effects on dependent wildlife and abandoned mine landsassociated cultural and historic resources. Since 1998, the agency 

has mitigated more than 6,000 safety hazards at abandoned mines.

To minimize or eliminate threats to human health and the environment, the program inventories and assesses sites 

where there is a release, or threat of release, of a hazardous substance, pollutant, or contaminant on NFS lands. After 

cleanup, the agency provides for long-term operation, maintenance, and monitoring of the site. We restore lands 

surrounding mines under Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) 

and other authorities.

Geologic Resources and Geologic Hazards on NFS lands

The Minerals and Geology Management program manages and protects geologic resources such as groundwater, 

Safety First on Abandoned Mine Lands

Inspection of the final phase of closures on steep 

limestone bedrock tract of Locher abandoned 

mine, George Washington and Jefferson National 

Forests, Rockbridge County, VA. Photo Credit: 

Forest Service 
FY 2018 Budget Justification USDA Forest Service

National Forest System 104

cave systems, paleontological resources, and natural landscape features. These resources support recreation and 

sustain watersheds and habitat. Caves provide habitat for sensitive species such as bats, which are pollinators 

essential to sustaining healthy ecosystems and crops alike. Laws and regulations require special designation, 

management, and/or protection of some geologic resources such as groundwater, caves, and paleontological sites. 

The agency manages these resources to protect their cultural, educational, scientific, and recreational values, and to 

protect groundwater resources to ensure water remains available for people and ecosystems.

Geologic hazards (geohazards) are natural conditions or processes, such as floods, landslides, avalanches, 

earthquakes, volcanoes, and naturally occurring hazardous minerals and gases like asbestos and radon. When 

geohazards occur, they can pose significant risks – disrupting transportation and utility services, damaging 

residential, recreational, and industrial structures, threatening lives, and impacting local communities. To minimize 

threats to life, health, and infrastructure from geologic hazards, the program assesses and monitors hundreds of sites, 

especially those in areas with high recreational use. When geohazards do occur, the agency helps mitigate the 

damage, and then continues to assess and monitor the geohazard to help forecast whether it might reoccur or pose 

additional risks.

Past Performance 

Reducing Application Processing Timeframes

In FY 2016, the Forest Service implemented new agency guidance on addressing groundwater resources in National 

Environmental Policy Act (NEPA) documents to fully document sufficient groundwater analysis under NEPA. It is 

anticipated that this will help support NEPA decisions and allow projects to proceed more quickly, increasing 

efficiency and lowering costs to the taxpayer. These guides should enable field units to conduct adequate analyses of 

groundwater resources using local expertise with basic knowledge and training in hydrogeology.

In addition, the agency continued to work with the Bureau of Land Management to improve coordination between 

agencies, standardize interagency policies, and update or streamline agreements on geothermal, coal, and non-coal 

solid minerals. This will help the agencies better serve the public by providing uniform policies and procedures, and 

reduce redundant administrative requirements for projects on lands spanning both agencies’ jurisdictions.

Long Term Financial Assurance: Post-Closure Cleanup Needs

In April 2016, the Forest Service published official guidance to address long-term maintenance and monitoring 

needs that occur after mining operations and reclamation activities have ended. The policy requires mine operators 

to establish interest bearing trust accounts that will complement traditional reclamation bonds already in place. The 

policy also outlines agency responsibilities for oversight of trust management.

During mining operations and following mine closures, short-term environmental cleanup and reclamation are 

necessary. Mining operators post reclamation bonds to ensure that funding is available for these short-term needs. In 

addition to the short-term cleanup, there is potential for long-term environmental protection to prevent postreclamation damage to surrounding habitat and water sources. Post-reclamation (post-closure) activities may include 

monitoring, water treatment, or maintenance of post-mining infrastructure such as mine waste storage facilities or 

even fences, and these activities may be required for many years (even centuries) beyond planned or unplanned 

mine closures. It is the mining operator’s responsibility to fund these long-term environmental protection activities. 

However, if an operator should default or declare bankruptcy, the burden falls on the American taxpayer. The new 

policy protects taxpayers by requiring mining operators to establish long-term trusts to ensure adequate funding to 

address all post-reclamation/ post-closure activities.

The agency is now working with two mines in Alaska - the Kensington Mine and the Greens Creek Mine - to 

establish financial assurance for long-term liabilities.

Greens Creek Mine is a large underground silver, zinc, lead, and gold mine located on the northern end of Admiralty 

Island National Monument. It affects about 350 acres – similar in size to the National Mall from the Capitol to the 

Lincoln Memorial. The Greens Creek tailings facility was approved for expansion in 2013 and construction is 
FY 2018 Budget Justification USDA Forest Service

National Forest System 105

currently under way. The expansion area is lined with high-density polyethylene and sand. The synthetic and natural 

liners under the tailings help protect water quality of the surrounding area.

Forest Service monitoring and administration has ensured that reclamation is taking place alongside mining 

activities to minimize the total disturbed acreage. Greens Creek has a reclamation bond with the Forest Service for 

$50 million, in addition to a bond with the State of Alaska for $13.5 million which would be used to fund a trust for 

water treatment in perpetuity.

Without this trust authority, this mine (and others) could eventually become managed by the Forest Service or under 

CERCLA authorities, at the taxpayers’ expense. Thus, the use of trust accounts as financial assurance will protect 

surface resources and prevent taxpayers from bearing the financial burden of funding these long-term obligations.

National Groundwater Program

Thirty-three percent of the public water supply originates from groundwater sources. To protect those sources, in FY 

2016 the agency completed three-dimensional groundwater maps that show where groundwater exists on the PikeSan Isabel-Comanche-Cimarron National Forests and Grasslands in Colorado and the Bridger-Teton National Forest 

in Wyoming. These maps help identify where groundwater may be vulnerable to loss or contamination by activities 

like mining or energy development, which helped the forests in their land management planning.

On the Sheyenne National Grassland in North Dakota, the agency collaborated with The Nature Conservancy to 

study the effects of using ditches and drainage on groundwater levels and wetland plants. It worked with other 

countries to protect habitats for migratory species, some of which spend time in the United States and play important 

roles in U.S. ecosystems. For example, the agency documented impacts of groundwater pumping in Ruoergai 

Marsh, China, the most important breeding area for Black-necked cranes in Asia. Working with local managers and 

researchers, the agency developed a monitoring plan and made recommendations to conserve wetland habitats and 

restore rangeland.
FY 2018 Budget Justification USDA Forest Service

National Forest System 106

Landownership Management

Budget Line Item Landownership Management

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Landownership Management

Annual Appropriations $77,730 $77,582 $69,000 -$8,582 -11%

Landownership Management Total 77,730 77,582 69,000 -8,582 -11%

Annual Appropriations FTEs 526 526 467 -59 -11%

Total Full-Time Equivalents (FTEs) 526 526 467 -59 -11%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Landownership Management

Acres of land adjustments to conserve the integrity of undeveloped lands 

and habitat quality 9,697 26,900 19,100

Number of land use authorizations administered to standard 22,088 17,000 17,000

Number of land use proposals and applications processed 4,476 4,000 4,000

Miles of landownership boundary line marked/maintained to standard 2,566 2,070 1,656

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $69,000,000 for the Landownership Management program, a net decrease 

of $8,582,000 from the FY 2017 Annualized CR (including $203,000 for annualization of the 2017 pay increase and 

$643,000 for the 2018 pay increase) and a decrease of 59 staff years ($77,582,000 and 526 staff years available in 

2017).

The FY 2018 budget request proposes $69,000,000 to convey lands that have lost their national forest character or 

are isolated from other Federal lands, and to mark and maintain National Forest System (NFS) boundaries. The 

reductions ($4,291,000 for adjusting land ownership; $4,291,000 for locating land boundaries) could result in fewer 

acres conveyed or exchanged to conserve the integrity of NFS lands, and a likely decrease in miles of boundary lines

marked and maintained.

Program Overview 

The Landownership Management program lays the foundation for all land and natural resource management 

activities on the NFS lands. The program secures and protects NFS lands and land interests. Through program 

implementation and land use authorizations, Forest Service staff ensure economically valuable public services and 

benefits from NFS lands are provided. 

When asked about the Forest Service, most people think of recreation or timber activities. While this program 

supports these uses, NFS lands also host a variety of national and rural infrastructure, including:

 fiber optic lines (Internet);

 cell towers;

 hydropower projects;

 oil and gas pipelines;
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National Forest System 107

 local community water reservoirs;

 road rights-of-way;

 emergency communications facilities;

 power lines; and

 water lines.

The Landownership Management program authorizes and 

manages infrastructure on NFS lands, enabling essential public 

services such as emergency communications, broadband, radio, 

cellular service, transportation, and clean water. The program 

also ensures the public’s natural resources are protected and 

conserved, while NFS lands are used for a myriad of activities, 

including infrastructure.

Supporting Vital Public Services While Protecting the Public’s Natural Resources 

The program protects NFS lands while authorizing and managing a variety of special uses. For example, 

hydropower projects located on national forest lands produce and deliver power that benefits populations that are 

often quite distant from national forests. Forest Service staff also ensure the protection and restoration of rivers and 

streams, sustain fish habitat and support water-based recreation. The program manages over 200 different types of 

activities on NFS land, and typically issues between 5,000 and 7,000 authorizations for these activities each year. 

There are currently 47,500 permits for land uses, and another 30,000 permits for recreation uses across the United 

States. 

Land use permits include rights-of-way for roads, pipelines, communication and navigation sites, and electric 

transmission and distribution facilities. Such uses of NFS lands directly support jobs by bringing economic and 

recreational benefits to local communities, particularly in rural communities where the agency is a major landowner. 

To manage these activities, the agency must evaluate new proposals to occupy and use NFS lands for nonrecreational purposes. Proposals include uses for new and existing roads, 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.

Past Performance 

Improving Our Work on Permissions for Land Uses 

In FY 2016, the agency made strategic investments to start developing an “ePermit” system that will allow the 

public (individuals and businesses) to electronically apply for special use permits online. The ePermit system will 

expedite the special use permit process, provide both the Forest Service and the public a better way to process 

requests for land uses, and allow the public to follow the status of their request in the permitting process. In addition, 

the agency closed or reissued over 2,500 of our permits.

The agency also implemented several regional and two national strike teams to address the special uses backlog, and 

to increase efficiency in processing energy, communications and other special uses that impact services to 

businesses and communities. The teams focused on processing expired, expiring, and new special use authorizations 

in a timely manner, inspecting existing special use authorizations for compliance, finalizing cost recovery 

agreements for permit holders, improving customer service, and ensuring appropriate fee collections, resulting in 

increased monetary returns to the U.S. Treasury.

Did You Know? The agency manages

approximately 47,500 permits for uses of Forest 

Service land. These uses generate billions of 

dollars to the U.S. economy.
FY 2018 Budget Justification USDA Forest Service

National Forest System 108

Communications Use

In FY 2016, the agency began implementing a centralized 

National Billing Team that reviewed all communications use 

authorization billing for timeliness and accuracy. Centralizing 

the communications use invoicing process resulted in better 

customer service, less impact to field personnel, and is estimated 

to add over $1 million in additional revenue deposited to the 

Treasury.

The agency also created a Communications Site Strike Team for 

the Angeles National Forest in California, which represents 

approximately 20 percent of all of the Forest Service 

communications authorization revenue, including some of the 

most complex sites and uses administered. The team members 

processed 95 (30-year-long) long-term permit applications for 

expired, expiring, or new communication use authorizations, 

and 22 new communication site management plans. Other 

significant accomplishments to date include notifications sent to 

all 95 holders, 83 cost recovery bills sent (totaling $95,000), and 

95 inspections completed.

National Partnerships to Serve Customers

This past year, the agency worked closely with the Heritage Program and the National Forest Homeowners 

Association to implement the new recreation residence guidelines following the passage of the Cabin Fee Act in 

December 2014. The law and the new guidelines were met by overwhelming approval by the National Forest 

Homeowners Association membership. The Act simplifies and stabilizes fees, streamlines program administration, 

provides a fair and reasonable return for the taxpayer, and ensures the longevity of this popular recreation program 

and a long-term source of revenue for the Forest Service. Recreation residences are estimated to eventually return to 

the Federal government more than $30 million in retained fees. The agency also expanded national relationships

with two energy companies, Pacific Gas & Energy and Southern California Edison. The cost recovery and collection 

agreements and fees from the renewed permits will generate approximately $8 million over the next four years in the 

Pacific Southwest Region alone. 

Increasing Domestic Energy Production and Local Revenue

In FY 2016, the agency reduced the processing time for major and master cost recovery agreements to ensure that 

agreements for energy projects and other large special use proposals requiring 50 hours or more of work can be 

processed in three days instead of several weeks. With this reduced processing time, smaller field staffs will actively 

engage and be able to process proposals from companies proposing large developments, make companies more 

willing to pay cost recovery for the agency’s work to process and manage projects, and increase the number of 

funding agreements process. 

Cellular Tower on the Angeles National 

Forest

A cellular tower located on the Angeles National 

Forest. This tower provides service to four different 

cell phone providers. Photo credit: Forest Service.
FY 2018 Budget Justification USDA Forest Service

National Forest System 109

Law Enforcement and Operations

Budget Line Item Law Enforcement Operations

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President'

s Budget

Program 

Changes

Percent of 

Program 

Changes

Law Enforcement Operations

Annual Appropriations $126,653 $126,412 $129,153 $2,741 2%

Law Enforcement Operations Total 126,653 126,412 129,153 2,741 2%

Annual Appropriations FTEs 691 691 691 0 0%

Total Full-Time Equivalents (FTEs) 691 691 691 0 0%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Law Enforcement Operations

Percent of cases referred for adjudication 4.5% 7.2% 5.0%

Number of documented law enforcement incidents per 10,000 

forest visits 5.3 6.0 5.3

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $129,153,000 for Law Enforcement Operations program, an increase of 

$2,741,000 from the FY 2017 Annualized CR (including $301,000 for Annualization of the 2017 pay increase and 

$951,000 for the 2018 pay increase), and 691 staff years ($126,412,000 and 691 staff years available in 2017).

The Forest Service will maintain staff years with the proposed funding to continue law enforcement officers from 

around the Nation to participate in marijuana eradication operations and marijuana grow site clean-up and 

reclamation.

Program Overview

The Forest Service Law Enforcement & Investigation (LEI) program is charged with providing a safe environment 

for the public, our employees, and protecting the Nation’s natural resources on approximately 193 million acres of 

National Forest Systems (NFS) lands in 44 States. The program accomplishes this by enforcing laws and regulations 

and investigating crimes increasing population growth in the wildland-urban interface, increasing popularity of NFS 

lands for motorized recreational use, and illegal occupancy which cause significant impacts to NFS lands and 

resources, and increase risks to public and employee health and safety.

The LEI program provides a highly visible uniformed patrol presence and rapid emergency response to incidents 

affecting the public and employees visiting or working on NFS lands. LEI conducts regular and recurring patrols. 

The LEI staff responds to crimes and conducts complex criminal and civil investigations ranging from minor 

infractions to serious felonies such as homicide, rape, assaults, and threats against the public and employees, 

domestic disputes, robbery, drug production and trafficking, domestic terrorism, destruction of government property, 

theft of archaeological resources, gang activity, and fire investigations.

The LEI staffs also frequently respond to catastrophic natural or manmade disasters at the local, regional, and 

national level, and commonly provide immediate emergency response in support of catastrophic wildland fire 

incidents on public lands. LEI is often the first law enforcement responder on these incidents and responsible for the 
FY 2018 Budget Justification USDA Forest Service

National Forest System 110

safety of firefighting personnel and equipment, the evacuation of visitors and residents, and the protection of 

property. The LEI program is also a rapidly deployable national law enforcement asset under the Federal Emergency 

Management Agency Emergency Support Function #13- Public Safety and Security.

Approximately 80 percent of marijuana grown on Federal public lands is grown on NFS lands. The LEI program is 

the lead organization combating this threat to public lands. LEI’s works to address illegal cannabis production, the 

associated severe environmental damage, and the significant safety risk Drug Trafficking Organizations pose to 

public lands. 

This program performs the following two activities:

Enforce Laws & Regulations - Includes uniformed patrol presence, resource protection patrols, and response to 

public and employee safety incidents and violations of laws and regulations. Common incidents on national forests 

include theft, assault, alcohol and drug use, unauthorized motor vehicle use, illegal occupancy, and trespassing. To 

protect NFS resources and visitors, 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 primary focus is the protection of natural 

resources, protection of Forest Service employees and the protection of visitors. 

Investigate Crime - Covers criminal and civil investigations of 

internal and external cases such as felony arson, drug possession, 

smuggling and manufacturing, thefts, and assaults. 

Drug Trafficking Organizations have been identified as the key 

producers of marijuana on NFS lands with activities confirmed on 

72 national forests and in all Regions except Region 10. Illegal 

trafficking on or near NFS lands of immigrants, drugs, weapons, 

and other contraband, and illegal exportation of weapons and 

illicit cash profits create ongoing and imminent threats to the 

safety of employees and the visiting public. Special Agents plan 

and conduct investigations concerning possible violations of 

criminal and administrative provisions of Forest Service and 

other statutes under the United States Code. These normally 

plainclothes officers carry concealed firearms and other defensive 

equipment, make arrests, carry out complex criminal 

investigations, and prepares investigative reports and present 

cases for prosecution to U.S. Attorneys.

Past Performance

In FY 2016, there were 5.3 documented law enforcement incidents per 10,000 forest visits, meeting the target 

(desired outcome) of 6 or fewer. Many of these incidents were critical emergency incidents involving threats to the 

safety of the public, employees, or property and resources. Also in FY 2016, 4.5 percent of all criminal cases were 

referred for adjudication compared to a target of seven percent. Many of the adjudicated cases included serious 

felony violations of law such as assault, controlled substance violations, theft and damage of government property, 

and significant civil cases. In FY 2016, LEI eradicated 872,986 marijuana plants.

Law Enforcement and Investigation Plane 

and Vehicle

Region 10 – Law Enforcement and Investigations 

Plane and Vehicles used during patrols in the 

Alaska Region.
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Capital Improvement & Maintenance 111

Capital Improvement and Maintenance

Appropriation Capital Improvement and Maintenance

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Capital Improvement and Maintenance

Annual Appropriations $364,164 $363,472 $99,693 -$263,779 -73%

Capital Improvement and Maintenance Total 364,164 363,472 99,693 -263,779 -73%

Annual Appropriation FTEs 1,945 1,945 1,662 -283 -15%

Total Full-Time Equivalents (FTEs) 1,945 1,945 1,662 -283 -15%

Capital Improvement and Maintenance

Facilities 71,390 71,254 11,750 -59,504 -84%

Roads 172,094 171,767 75,243 -96,524 -56%

Trails 77,530 77,383 12,700 -64,683 -84%

Deferred Maintenance and Infrastructure Improvement 3,150 3,144 0 -3,144 -100%

Legacy Roads and Trails 40,000 39,924 0 -39,924 -100%

Capital Improvement and Maintenance Overview

The FY 2018 President’s Budget proposes $99,693,000 for Capital Improvement and Maintenance, a decrease of 

$263,779,000 from the FY 2017 Annualized CR (including $968,000 for annualization of the 2017 pay increase and 

$735,000 for the 2018 pay increase), and a decrease of 283 staff years ($363,472,000 and 1,945 staff years available 

in 2017).

Justification of Increases and Decreases

The President’s Budget request focuses the Capital Improvement and Maintenance programs on managing existing 

infrastructure and maintaining public safety.

A decrease of $59,504,000 for the Facilities program. The FY 2018 budget proposes $11,750,000 for staff to 

administer and maintain existing recreational and administrative facilities. It does not include any major facilities 

projects at this time, but highest priority maintenance will be maintained. 

A decrease of $96,524,000 in the Roads program. The FY 2018 budget proposes $75,243,000 to maintain a staff

level to address public safety needs by identifying and addressing maintenance on the highest priority road. For the 

purpose of timber harvest, the agency will focus on taking better advantage of all funding sources where appropriate,

such as Timber Salvage Sales (which pays for design and administration of timber haul roads, and the Timber 

Purchaser Election Road Construction).

A decrease of $64,683,000 in the Trails program. The FY 2018 budget proposes $12,700,000 to maintain a staff 

level to address public safety needs. 

A decrease of $3,144,000 in the Deferred Maintenance program. The FY 2018 budget request proposes no funding 

for the Deferred Maintenance program.

A decrease of $39,924,000 in the Legacy Roads and Trails program. The FY 2018 budget request proposes no 

funding for the Legacy Roads and Trails program.
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Capital Improvement & Maintenance 112

Facilities

Budget Line Item Facilities

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Facilities

Annual Appropriations $71,390 $71,254 $11,750 -$59,504 -84%

Facilities Total 71,390 71,254 11,750 -59,504 -84%

Annual Appropriations FTEs 307 307 256 51 17%

Total Full-Time Equivalents (FTEs) 307 307 256 51 17%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Facilities

Facilities condition index 84.0% 82.0% 82.0%

Percent of administrative facilities with "Good" or "Fair" condition 

rating 58.0% 58.0% 58.0%

Percentage of recreation facilities with a "Good" or "Fair" condition 

rating 77.0% 74.0% 74.0%

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

Please refer to information about funding changes for Facilities within the Capital Improvement and Maintenance 

Overview section.

Program Overview

The Facilities program provides the infrastructure enabling the 

agency to care for the land, and supports recreational amenities 

to serve the public. Approximately half of the facilities budget 

supports recreational facilities, and the other half supports 

Forest Service missions to restore resilient landscapes, manage 

wildland fire and emergency response efforts, and conduct 

research (over 800 facilities support the research mission). 

By providing safe facilities, the program also protects employee and visitor safety, preserves the value of public 

investments by preventing facilities from deteriorating, and protects natural resources surrounding the facilities. 

Additionally, the Facilities Program provides efficient and effective facilities management. To accomplish these 

goals, the Facilities program focuses on:

 operating clean, safe, and fully functional facilities at recreation sites;

 performing routine annual maintenance;

 assessing facilities’ physical condition and regulatory compliance;

 implementing Five-Year Deferred Maintenance and Capital Improvement Plans;

 inventory and describe assets; 

 establishing appropriate levels of investment; and

The Forest Service Facilities Portfolio

The Forest Service Facilities Program addresses 

maintenance, capital improvement, and management 

of almost 40,000 buildings, 9,543 water/wastewater 

systems, almost 28,000 recreation sites, and more 

than 460 Forest Service-owned dams. 
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Capital Improvement & Maintenance 113

 adopting public/commercial benchmarks and best practices.

The program includes deferred maintenance and capital improvements, 

and annual maintenance and operational costs.

Greening Our Infrastructure 

The Forest Service Facilities program practices sustainability in facilities 

management, maintenance, and capital improvement. The program meets

sustainability goals by mandating high efficiency energy and water 

consumption designs when repairs or modifications are implemented for 

any facility, constructing net-zero energy facilities where practicable, and 

reducing waste through recycling and improved waste management 

whenever possible. 

New construction projects for administrative facilities are registered and 

certified, primarily using the U.S. Green Building Council’s Leadership 

in Energy and Environmental Design (LEED) rating system or the Green 

Building Initiatives Green Globes rating system. The program aims for a 

minimum of Silver certification under LEED, a minimum of Two Green 

Globes under the Green Globes system, or a similar category under other third party certification systems.

Connecting People to the Outdoors

Forest Service recreation attracts approximately 149 million visitors annually. Recreation facilities improve the 

visitor experience and connect Americans with their national forests.15 Administrative buildings, such as ranger 

stations and visitor centers, allow the public to learn about their forests and grasslands. Campgrounds, picnic areas 

and day use sites provide safe amenities for visitors to stop, eat, 

explore, and play. Facilities provide necessary services, such as 

water and restrooms, while protecting other forest areas.

Making Recreation Accessible to All

The agency is significantly improving access to national forests 

for everyone, including seniors, families, and the estimated 57 

million Americans with disabilities. The Forest Service provides 

the largest number and widest range of accessible recreation 

facilities in the country, including interpretive sites, 

campgrounds, picnic areas, visitor centers, target ranges, 

trailheads, observation sites, etc. Twenty-eight percent of all 

recreation sites, such as campgrounds, picnic areas, and day use 

sites – and 49 percent of all recreation site buildings - are 

accessible to people of all abilities. The agency strives to allow 

all Americans to experience the benefits of our public lands –

including improved health, social connections, and quality of 

life.

Past Performance 

The Forest Service facilities program focuses on reducing the overall facilities footprint, improving energy and 

water efficiencies, decreasing the deferred maintenance backlog, decommissioning unneeded infrastructure, 

 

15 https://www.fs.fed.us/recreation/programs/nvum/pdf/508pdf2015_National_Summary_Report.pdf

Benefits of Sustainable Facilities

Sustainable facilities significantly reduce 

operation and maintenance costs. 

Above, a prefabricated restroom is 

assembled on-site. It is extremely durable, 

easily maintained, and features a new 

design pioneered with the manufacturer to 

meet Forest Service sustainability 

guidelines. Photo Credit: Forest Service.

Improving Public Access

Construction of accessible pathways in 

campgrounds and picnic areas improves access for 

the visiting public. Photo Credit: Forest Service 
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 114

improving capital assets, and increasing dam safety.

Increasing Community Safety Around Dams

There are many small dams on National Forest System lands. Some are owned by the Forest Service, while others 

are owned by local communities. These dams were built decades ago for various purposes (irrigation, recreation, 

water supply, etc.) The majority are over 50 years old, and in many cases communities have grown up around the 

dams, creating potential risks to life and property if dams fail. The Forest Service uses Emergency Action Plans to 

provide clear direction for authorities to respond to dam-related incidents, and provides inundation maps to identify 

critical infrastructure and at-risk populations that may require protection, warning, or evacuation. In FY 2016, the 

agency updated Emergency Action Plans and associated inundation maps for 36 High Hazard Potential dams, and is

preparing to test the Emergency Action Plans in coordination with local emergency managers. 

This program is working to increase community safety around dams. For example, the Hume Lake Dam, located on 

the Sequoia National Forest in California, was built in 1908 as a log pond and water source to float timber 

downstream. Today the lake behind the dam, Hume Lake, is a popular recreation area frequented by thousands of 

visitors annually. In addition, releases from Hume Lake provide year-round flow for fisheries downstream in an area 

suffering from severe drought. Hume Lake is a high hazard dam, with at-risk populations downstream should the 

dam fail.

In FY 2016 the Forest Service completed a $3 million upgrade to prevent water seepage by installing a waterproof 

membrane on the Hume Lake Dam’s face, and by sealing the foundation. The improvements have significantly 

reduced or eliminated seepage through and under the dam. The agency will also install a system to allow remote 

control and monitoring of the dam.

Increasing Accessibility for Outdoor Recreation

The agency is committed to providing recreational opportunities for all people, regardless of age or ability. In FY 

2016, more than 28 percent of recreation site capacity was accessible –a record. There are 8,600 accessible 

recreation buildings, including over 100 of which were developed in FY 2016.

Hume Land Dam

Hume Lake Dam and associated lumber mill in full operation in the early 1900s. Photo Credit: Forest Service 

Pacific Southwest Region Engineering 
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Capital Improvement & Maintenance 115

Reducing our Physical and Environmental Footprint 

The Forest Service is investing to improve the performance of its 

facilities in terms of sustainability, energy and water conservation, and 

operational cost-effectiveness. For example, in FY 2016, the 

Chequamegon-Nicolet National Forest substantially completed several 

improvements to dramatically improve the efficiency of the Northern 

Great Lakes Visitor Center. Improvements include insulation, 

modernization of the heating and air conditioning system, new LED 

lighting in the building and parking lot, and installation of photovoltaic 

solar panels estimated to produce 137,000 kilowatt-hours of energy per 

year. Initially, the improvements will offset at least 42 percent of the 

prior electricity usage, and that number could rise to as much as 70 

percent. The Center plans to achieve a Green Globes

certification. Moreover, an interpretive exhibit will demonstrate how 

peoples’ decisions about buildings influence the environmental footprint 

of that structure, which in turn affects the natural world. In this way, the 

agency is modeling and demonstrating environmental stewardship while 

reducing utility costs.

Collaborating with Partners to Achieve Multiple Resource Goals

In FY 2016, the Chippewa National Forest in Minnesota celebrated the completion of the Knutson Dam 

Replacement and Improvement Project at the Mississippi River outlet on the north shore of Cass Lake. The Forest 

Service worked with the Minnesota Department of Natural Resources, Leech Lake Band of Ojibwe Tribe, the Army 

Corps of Engineers, the U.S. Fish and Wildlife Service, Ottertail Power, and the Midwest Glacial Lakes Partnership 

to accomplish this project. These partners contributed half of the total project cost.

The Knutson Dam was built in the early 1900's as a logging dam. Since it came under Forest Service jurisdiction in 

1926, it has been used to regulate the water levels of the upstream and downstream lakes and the river, providing 

appropriate fish spawning conditions, allowing recreational access, and limiting high and/or low water level 

extremes. A 2011 engineering inspection showed the dam needed significant repairs to remain operational. The 

Forest Service had also just completed a forest-wide watershed assessment, creating an opportunity to address the 

many structural and natural resource issues the dam created. 

The project removed the failing Knutson Dam and reconnected the Mississippi River at the outlet of Cass Lake 

through construction of innovative rock arch rapids (see text box), restoring spawning habitat for species such as the 

walleye and white sucker fish. It also enhanced aquatic organism passage to over 30 miles of river and more than 

72,000 acres of lakes such as Cass Lake and Lake Winnibigoshish, which are world-class walleye fisheries. This 

project also improved recreational fishing access through the addition of a modern fishing pier, reduced the potential 

for lakeshore erosion on Cass Lake, restored the Cass Lake watershed, limited high water levels, and reduced safety 

hazards of the former logging dam. Finally, it reduced operation and maintenance costs by up to $20,000 per year.

Below are examples of projects ongoing and completed in FY 2016:

 The Intermountain Region completed reconstruction of the Fremont Lake Campground.

 The Northern Region continued to remodel and reconstruct Fort Missoula’s Building 26 to serve as the 

Regional Office in Missoula, Montana. A total of 225 employees will eventually be housed in the building. 

This project not only preserves and utilizes a significant historic building, but also reduces the Regional 

Office footprint by 50 percent, eliminating $8 million in deferred maintenance backlog. It will reduce 

operation and maintenance costs by up to $1.6 million annually.

A Model of Sustainability

In partnership with the State of 

Wisconsin, the Forest Service has reduced 

the environmental footprint of the 

Northern Great Lakes Visitor Center. The 

building is a multi-use, multi-agency 

facility, attracting approximately 160,000 

visitors annually, who contribute more 

than $5 million to the local economy each 

year. Photo Credit: Forest Service 
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 116

 The Pacific Southwest Region began construction of a new Kern River Ranger District Office. The project 

will consolidate 20 full-time employees from two separate 

offices under one roof and decommission the old office 

location that is located in the way of a new dam expansion 

project. The new office will be energy efficient building and 

will eliminate $880,000 in deferred maintenance backlog. 

The project also closes out a long-term lease eliminating 

future lease costs.

 The Uinta-Wasatch-Cache National Forest in Utah awarded 

a contract to decommission the Mill Creek Dam in Utah. 

The project is part of an ongoing effort by the Forest Service 

and the Utah Division of Wildlife Resources to restore the 

Mill Creek watershed to more natural and historic 

conditions. The project will eliminate $368,000 in deferred 

maintenance, and save the region $20,000 in operation and 

maintenance costs annually. It will reconnect and restore 

habitat of the native cutthroat trout, allowing it to repopulate 

areas in which it had become extinct. It will also improve 

flood control along the stream, increasing public safety. The 

Forest Service is collaborating with a large number of partners to leverage appropriated dollars with 

matching funds to complete the work, including the U.S. Fish and Wildlife Service, Utah Anglers 

Coalition, Utah Habitat Council, the Western Inland Trout Initiative, Trout Unlimited, PacifiCorp, and the 

Great Salt Lake Council of the Boy Scouts of America, which has multiple camps nearby.

 The Southern Region awarded a contract for the decommissioning of the Camp Ocala facility. The project 

will eliminate 50,800 square feet of facility footprint, and remove $252,000 in deferred maintenance 

backlog. This project will decommission utility systems, roads, and site amenities such as sidewalks, 

fences, docks, and a tennis court. Natural vegetation will be restored on the site following decommissioning 

of all constructed features. 

Restoring Trout Habitat

Removal of the Mill Creek Dam on the UintaWasatch-Cache National Forest in Utah will 

reconnect and restore habitat of the native 

Bonneville Cutthroat Trout. Photo Credit: 

Forest Service 
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Capital Improvement & Maintenance 117

Knutson Dam

Above: Knutson Dam before project: at risk of failing, provided poor habitat

Knutson Dam after project: failing dam removed, more natural stream flow restored by installing ‘rock arch rapids

The rock arch rapids provide more natural habitat while maintaining desired seasonal water levels. The project received several 

awards, including the 2016 Rise to the Future award for working with partners to enhance aquatic resources, and the Lake-Friendly 

Award for Protection Strategy, awarded by area environmental organizations and the Minnesota DNR. The Nature Conservancy 

also nominated the project for the Lake and River Stewardship Award. Photo Credits: Forest Service
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 118

Roads

Budget Line Item Roads

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Roads

Annual Appropriations $172,094 $171,767 $75,243 -$96,524 -56%

Roads Total 172,094 171,767 75,243 -96,524 -56%

Annual Appropriations FTEs 977 977 874 -103 -11%

Total Full-Time Equivalents (FTEs) 977 977 874 103 -11%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Roads

Miles of passenger car roads receiving maintenance 33,378 30,000 30,000

Miles of high clearance system roads receiving maintenance 16,716 12,000 12,000

Miles of road reconstruction and capital improvement 2,710 2,000 2,000

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

Please refer to information about funding changes for Roads within the 

Capital Improvement and Maintenance Overview section.

Program Overview 

The Roads program provides safe, critical access to and through 

National Forest System (NFS) lands. 

The Forest Service’s roads system provides safe, sustainable access for:

 the public to enjoy recreation;

 timber companies to conduct timber harvests;

 forest managers to reduce hazardous fuels and manage 

vegetation;

 mining interests to access minerals, oil, and gas; 

 facilities on NFS lands such as communications towers and 

utility rights-of-way; and

 emergency responders and local residents in the event of a 

wildland fire or other emergencies.

 

16Roads in Storage are roads that cannot be effectively maintained or roads that are not currently needed but may be needed at a 

later date. These roads are temporarily closed and taken out of use.

The graphic above shows the types and 

mileage of Forest System Roads. The NFS 

road system has a deferred maintenance 

backlog of almost $3 billion.16

The Forest Service road network includes

over 370,000 miles of road and 6,200 

bridges. It could circle the Earth almost 15 

times.
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 119

Through proper road management, the roads program also protects 

clean and abundant water in national forests by implementing best 

management practices for water quality, and by improving places 

where bridges cross streams so fish and other aquatic organisms can 

pass under bridges safely. 

The Roads program maintains the safety and wellbeing of the public 

and employees by conducting safety assessments and audits, and 

making necessary safety improvements. Increasing public and 

employee safety and resource protection are priorities for Road 

program funds. 

The agency is currently working to strengthen the Safety Management 

System for roads and bridges in partnership with the Federal Lands 

Highway Division of the Federal Highway Administration.

Good Roads Keep Watersheds Healthy 

Roads that are poorly maintained result in erosion and sediment in streams, and have a direct negative effect on the 

quality of the Nation’s drinking water and wildlife habitat. Ensuring that the road surface is stable, and the drainage 

system functions properly, can reduce or eliminate these impacts. This work will be expended upon the President’s

initiative of modernizing infrastructure, which includes removing or replacing structures where roads cross streams 

to allow fish and other aquatic organisms to pass, and reconstruction to reduce road sediment entering streams. 

Roads that cannot be effectively maintained are either temporary closed or taken out of use, or permanently removed 

(decommissioned), or their land restored to a natural state.

Access for Timber Harvests

Roads are necessary to reach and transport timber in 

the forest. They provide essential access for saw 

mills and companies that support the country’s 

timber needs. Photo Credit: Vladimir Steblina.

Roads Impact Water Quality

 

A washed out road (left) degrades water quality by allowing sediment into the water. A road next to a healthy stream (right) was 

removed, protecting water quality and restoring habitat. Through proper management like this, the Roads program protects and 

improves watershed quality. Photo Credits: Forest Service
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 120

Prioritizing Road and Bridge Work

The Roads program prioritizes funds for road and bridge work is based on several factors. These include the Forest 

Service’s determinations of which types of uses (e.g. passenger car, high-clearance truck, and non-motorized 

vehicles) are appropriate for different roads; information from safety, road, and bridge data; and ecological

considerations such as areas identified by the Watershed Condition Framework as needing restoration.17 Road 

standards, public expectations, and maintenance costs vary significantly between intermittent high-clearance routes 

(that are used by relatively few vehicles) and higher-speed paved highways (that may accommodate thousands of 

vehicles per day). The Forest Service prioritizes road maintenance each 

year, deciding which roads will be improved or maintained for public 

safety and needed access, while deferring other repairs. Sometimes road 

projects are too expensive to fund all at once, and access must be 

restricted on these roads until repairs can be funded. The Forest Service 

manages such roads by changing the permitted use (e.g. prohibiting 

passenger cars from using the road, or reducing the road from two lanes 

to one) or closing the road until repairs can be made.

Past Performance 

Working with the Federal Highway Administration

The Forest Service Roads program collaborates with the Federal 

Highway Administration (FHWA), leveraging Federal highways 

funding to complete projects. In FY 2016, the Forest Service became a 

full partner with the FHWA under the Fixing America's Surface 

Transportation (FAST) Act.18 Through this partnership, the agency will improve roads for high-use recreation sites 

and reduce our deferred maintenance. The agency also improved watersheds by modifying areas where roads cross 

streams so that fish can pass through and the streams are resilient to flooding. The FAST Act allocated $15 million 

of funding to the Forest Service in FY 2016, rising to $19 million annually by FY 2020. In the first year of 

collaborating with the FHWA, we developed a multi-year 

investment strategy to prioritize which assets to address (see table). 

Selected projects will address goals of both the Department of 

Transportation and the Department of Agriculture to improve 

safety, connect people to the outdoors, strengthen communities, 

mitigate drought, and protect clean water sources by improving 

flood resilience at road-stream crossings and stabilizing roads and 

trails.

 

17The Watershed Condition Framework is a methodology developed by the Forest Service to implement integrated suites of 

activities in those watersheds that have been identified as priorities for restoration. For more information, see 

http://www.fs.fed.us/sites/default/files/legacy_files/media/types/publication/field_pdf/Watershed_Condition_Framework.pdf

18Public Law 114-94.

Forest Service Priorities under the FAST 

Act

Priority Asset

Number Identified in

Multi-Year Strategy

Roads 29,300 miles

Trails 30,000 miles

Bridges 2,430

Multimodal 

Facilities 82

Repairing Roads in Remote 

Locations

Maintenance, repair, and construction on 

National Forest System roads can be 

costly due to the roads’ remote locations 

and difficult terrain. Photo Credit: Forest 

Service.
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Capital Improvement & Maintenance 121

The agency is also working with FHWA to meet requirements passed in 2012 to develop a road tunnel inspection 

program similar to the National Bridge Inspection Standards.19 In FY 2016, the Forest Service took an inventory of 

tunnels on National Forest System roads, and the agency is collaborating with FHWA to initiate a tunnel 

management and inspection program to improve public safety on the Forest Service transportation system.

Example of Using Federal Highway’s Funds: Moon Lake Road Paving Project, Ashley National Forest, Utah 

The Moon Lake Road project leveraged the Forest Service Road program appropriation with the FHWA funding to 

efficiently reconstruct five miles of road to Moon Lake, a popular recreation destination in the Ashley National 

Forest in Utah. The public makes heavy use of Moon Lake Resort (a family business) and Moon Lake Campground 

(managed by the Forest Service). This full-service recreation area includes cabins and facilities for camping, 

picnicking, hiking, swimming, and fishing. Tourism at Moon Lake is an important economic generator for the 

communities in the county. Stores, lodging, and outfitters and tour guides in the community depend on the economic 

activity generated by Moon Lake tourism. In addition, the Moon Lake road provides access to other lakes, trails, and 

attractions in the wilderness area for visitors. 

 

19This requirement was included in the Moving Ahead for Progress in the 21st Century (MAP-21), signed into law in 2012.

Moon Lake Road Reconstruction

 

Reconstruction was completed in FY 2016, ensuring continued access to the economically important Moon Lake Campground 

and Moon Lake Resort. Photo Credits: Forest Service
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 122

Trails

Budget Line Item Trails

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Trails

Annual Appropriations $77,530 $77,383 $12,700 -$64,683 -84%

Trails Total 77,530 77,383 12,700 -64,683 -84%

Annual Appropriations FTEs 583 583 532 -51 -9%

Total Full-Time Equivalents (FTEs) 583 583 532 -51 -9%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Trails

Miles of system trails maintained 56,549 55,000 55,000

Miles of system trail improved 1,709 1,300 1,300

Percentage of system trails that meet national quality standards 24.0% 27.0% 27.0%

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

Please refer to information about funding changes for Trails within the Capital Improvement and Maintenance 

Overview section.

Program Overview 

The NFS trail system is the largest managed 

system of trails in the country, containing over 

158,000 miles of trails, including over 32,000 

miles in designated Wilderness areas. NFS trails 

are so extensive, they could circle the Earth over 

six times.20

We are also the lead agency responsible for trailwide coordination and administration of six 

National Scenic and Historic Trails including: 

the Pacific Crest, Continental Divide, Florida, 

Arizona, and Pacific Northwest National Scenic 

Trails, and the Nez Perce National Historic Trail. 

The Forest Service also manages portions of 15 

other Congressionally-designated trails, including 

the Appalachian National Scenic Trail and the 

Iditarod National Historic Trail.

 

20 According to NASA, the circumference of the Earth is 40,070 kilometers, or 24,898 miles. See 

http://imagine.gsfc.nasa.gov/features/cosmic/earth_info.html
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 123

Trails:

 Provide safe, high quality access for the public to enjoy a 

wide range of outdoor experiences including hiking, 

horseback riding, mountain biking, all-terrain vehicle use, 

cross-country skiing, and snowmobiling. 

 Support the efforts of the majority of outfitters and guides 

(approximately 5,000) who work on NFS lands and depend 

on trails that are safe, well-maintained, and available to the 

public.

 Provide safe and ready access to the backcountry for 

wildland firefighters, emergency response personnel, and 

natural resource managers.

 Minimize user impacts to watersheds and other natural and 

cultural resources, and promoting ecosystem health by 

protecting soil, vegetation, and water quality.

 Encourage citizen stewardship by thousands of partners and 

volunteers each year who provide critical help in maintaining trails, including clearing encroaching 

vegetation and fallen trees, repairing bridges, improving water drainage, and maintaining signs.

Past Performance 

National Strategy for a Sustainable Trail System

In FY 2016, the Forest Service developed a National 

Strategy for a Sustainable Trail System. The Strategy 

provides direction and guidance on achieving a trail 

system that is socially, economically, and 

environmentally sustainable, and that is relevant and 

responsive to the needs of a diverse, changing population. 

The Strategy outlines a series of core values and strategic 

actions to be implemented through a shared stewardship 

approach between agency leaders and employees, 

partners, and volunteers. The major strategic actions laid 

out in the plan include shifting to collaborativelystewarded trail systems; providing integrated training for 

managers, technicians, and partners and volunteers; 

gaining process efficiencies; and improving data systems 

and trail information.

Trails are a key conduit for connecting with and fostering 

citizen stewards. In FY 2016, citizen stewards –who are volunteers and service participants – spent 1.3 million hours 

maintaining and improving over 28,000 miles of NFS trails. To put this work in perspective, that length is 10 times 

the distance from Florida to Washington State. This enormous amount of work had an in-kind value of $29.9 million

to the NFS. Volunteer work on trails comprised over 29 percent of all volunteer and service hours contributed 

agency-wide.

The Chugach National Forest, in partnership 

with the Interpretation & Conservation 

Education Program, worked with the Iditarod 

Historic Trail Alliance and the Bureau of 

Land Management to kick off the seventh 

year of the Iditarod Trail to Every Classroom 

(iTREC!) program at the University of 

Alaska, Anchorage. 

Sixteen elementary school teachers 

participated from traditional, immersion, 

charter, and STEM schools. The program 

educated teachers on how place-based 

service learning can connect children to their 

public lands (special emphasis is placed on 

fourth-grade participation). 

Citizen Stewardship In Action

Volunteers installing an interpretive sign on the Nez Perce 

National Historic Trail. Photo Credit: Chuck Raddon.
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 124

Keeping Trails Safe 

Left: Snow trail prior to maintenance. Right: After maintenance, the snow trail is restored to safety standards. Photo 

Credits: Chuck Raddon.
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 125

Deferred Maintenance and Infrastructure Improvement

Budget Line Item Deferred Maintenance and Infrastructure Improvement

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Deferred Maintenance and Infrastructure Improvement

Annual Appropriations $3,150 $3,144 0 -$3,144 -100%

Deferred Maintenance and Infrastructure Improvement Total 3,150 3,144 0 -3,144 -100%

Annual Appropriations FTEs 1 1 0 -1 -100%

Total Full-Time Equivalents (FTEs) 1 1 0 -1 -100%

Justification of Increases and Decreases

Please refer to information about funding changes for Deferred Maintenance and Infrastructure Improvement within 

the Capital Improvement and Maintenance Overview section.

Program Overview 

The Deferred Maintenance and Infrastructure Improvement program 

addresses the maintenance backlog of Forest Service facilities, 

infrastructure, and assets. Deferred Maintenance refers to maintenance or 

repairs which should have been completed - either as part of a regular 

schedule, or after unforeseen events like storm damage - but that were 

delayed due to various reasons. 

The Forest Service’s assets include almost 28,000 recreation facilities, over 

16,000 administrative buildings, fire and aviation infrastructure, over 

13,000 bridges, and a road system long enough to circle the Earth almost 15 times. The Deferred Maintenance and 

Infrastructure Improvement program funds maintenance, repairs, and restoration when project costs exceeds

$250,000 (it does not fund operation costs). Forest Service facilities, infrastructure, and assets have a backlog of 

over $5.2 billion in maintenance and repair needs as of the end of FY 2014 (most recent data available). 

This program may also fund infrastructure improvement projects, including building new facilities modifying 

existing facilities to change their function, and expanding facilities to increase their capacity. In many cases, 

infrastructure improvements eliminate deferred maintenance or are initiated as part of a deferred maintenance or 

repair project. These improvements bring infrastructure up to modern safety code, improve or establish its 

accessibility, increase its cost-effectiveness, efficiency, and sustainability, reduce its negative impacts on the 

environment, and help our assets better serve the public.

Past Performance

Making Recreation Sustainable in the San Gabriel Mountains National Monument

The San Gabriel Mountains National Monument in California, designated in 2014, is a prime example of how 

completing deferred maintenance is critical to providing safe facilities and protecting natural resources. The Forest 

Service provided funds in FY 2016 to address issues at this site. 

Forest Service Assets

Trails (miles) 157,348

Buildings 39,826

Recreation Facilities 27,849

Bridges 13,006

Drinking Water Systems 4,779

Wastewater Systems 4,764

Dams (agency owned) 460

Roads (miles) 370,581
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 126

Over 3.5 million visitors come to this area each year, placing 

exceptionally high demands on the site. The Cattle Canyon 

recreation area along the San Gabriel River is the most popular dayuse area. Ninety-three percent of visitors to the river are Latino, and 

many come from communities with little access to parks, making it 

even more critical for the Forest Service to ensure that sustainable 

recreation opportunities are available.

Due to inadequate facilities, recreation at this site is not currently 

sustainable for either visitors or the environment. The site has few 

restrooms or trash cans, leading to severe trash pollution, which 

degrades the site’s water quality, threatening aquatic life. Native 

aquatic life is also threatened by human-built dams and mechanical 

dredging for gold. There are few places to safely access the river, 

few interpretive programs and few rangers - especially multilingual 

rangers - to answer questions about the area. 

In FY 2016, the Forest Service provided $925,000 for work at this site. Of this amount, $400,000 funded an 

agreement with a local partner, the Watershed Conservation Authority (WCA). The WCA is providing a 20 percent 

funding match. This project will improve recreational opportunities for visitors and protect the environment by 

constructing parking, safe river access points, and restrooms. Trash cans and picnic tables will also be installed. A 

multi-lingual interpretive center will be added, and more multi-lingual rangers will be onsite. 

The remaining $525,000 funded an agreement with the National Fish and Wildlife Foundation (NFWF) to maintain 

and rehabilitate 75 miles of trails, and provide information about alternative recreation opportunities near Cattle 

Canyon. By doing so, the project will encourage recreational users to visit other parts of the Monument, decreasing 

the demand on Cattle Canyon. NFWF will contribute $105,000 to the project.

Deferred Maintenance Backlog - $5.2

Billion

Includes only funding required to keep assets 

fully functional. Excludes improvements 

unnecessary for basic maintenance.

San Gabriel Mountains National Monument

Left: The Forest Service provided funding in 2016 to address issues at Cattle Canyon, which currently has few restrooms, 

trash cans, or other facilities. Current parking is inadequate. Without proper facilities and site interpretation, intense 

recreational use degrades the resources visitors come to enjoy.

Right: In the absence of proper facilities and site interpretation, intense recreational use includes visitor-built pools that 

interrupt stream flow, create barriers to fish and aquatic organism passage, and impact water quality.
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 127

Keeping the Mt. St. Helens Visitor Center Open

Located in southwestern Washington, Mt. St. Helens is one of several volcanic peaks in the Pacific Northwest and it 

is famous for its massive eruption in 1980, the most destructive in U.S. history. The eruption killed 57 people, 

including volcanologist David A. Johnston, and produced the largest landslide and debris avalanche ever recorded in 

the United States. Almost 150 square miles of forest were 

destroyed.

Today, the environment at Mt. St. Helens is recovering. It is now 

a site of national historic importance and a massive draw for 

tourists. Approximately 500,000 people visit this remote area 

each year. Recreational activities available include hiking, 

camping, boating, climbing, and wildlife viewing. Recreation at 

Mt. St. Helens also supports several tourism-dependent 

communities.

The Mt. St. Helens Visitor Center complex is one of the most 

visited Forest Service facilities in the country, but the deferred 

maintenance there has severely impacted visitors’ ability to access 

this significant site. The Visitor Center has already had to close 

four times on an emergency basis because of septic and water 

system failures. The Johnston Ridge Observatory and Coldwater 

Ridge Science and Learning Center (National Visitor Center 

Complex) also has failing water, wastewater, and heating/cooling 

systems. 

Addressing this deferred maintenance in FY 2016 was considered 

critical to keeping the Visitor Center complex open. Using 

$450,000 in deferred maintenance funds, the agency repaired 

various utility systems, fire alarms, and fire-related safety 

infrastructure. This project will restore all utility systems to a 

proper and safe operating condition. This project also eliminates 

$364,000 in deferred maintenance backlog. 

By funding this project in FY 2016, the agency avoided imminent 

irreparable damage and the need for complete replacement of the 

utilities, which would have caused lengthy, season-long closures 

and been far more costly. The repairs were also mandatory under 

the Clean Water Act, and necessary to bring facilities up to code. 

This project also supported local economies by avoiding long-term closures of this popular visitor center.

Enabling Staff to Fulfill the Mission

The Corvallis Forestry Sciences Laboratory (CFSL) in Oregon has begun a complete renovation of its severely 

aging heating and cooling system. The system is so old that it is at risk of eminent failure. Some research in the lab 

is climate-dependent, so a failure of the heating and cooling system would damage or destroy long-term projects, 

possibly wiping out years of work and resources. Keeping the facility in adequate shape protects this valuable 

research.

Renovation of the Laboratory was funded with $1.72 million from the Deferred Maintenance and Infrastructure 

Improvement program in FY 2016. When complete, it will eliminate $1.3 million in deferred maintenance backlog. 

The project will update most of the heating and cooling systems to meet current energy efficiency standards. It will 

also modernize several large walk-in refrigerators that serve the research facility. Those which are no longer needed 

will be removed, and the vacated space will be converted to offices to address overcrowding. The project will bring 

much of the facility into compliance with the USDA office space utilization standards, making agency use of this 

space much more efficient.

Johnston Ridge Observatory and 

Coldwater Ridge Science and Learning 

Center

Pictured at top is the Coldwater Ridge Science

and Learning National Visitor Center, and at 

bottom is the Johnston Ridge Observatory, named 

after David A. Johnston. These facilities are part 

of the Mt. St. Helens Visitor Center complex, one 

of the most visited Forest Service facilities in the 

country.
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 128

Fixing these systems will also help keep other organizations in the building, contributing to the cost of building 

maintenance. The nearly half century-old CFSL building houses approximately 330 people from five different 

organizations, including the offices of the Siuslaw National Forest; the Natural Resource Manager system (a critical 

Forest Service database); the United States Geological Survey Forest and Rangeland Ecosystem Science Center; 

Oregon State University offices; and the Forest Service Pacific Northwest Research Station. With updated heating 

and cooling systems, these organizations will remain in the building, and non-Forest Service tenants will continue to 

pay rent, offsetting some maintenance costs. 
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 129

Legacy Roads and Trails

Budget Line Item Legacy Roads and Trails

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Legacy Roads and Trails

Annual Appropriations $40,000 $39,924 0 -$39,924 -100%

Legacy Roads and Trails Total 40,000 39,924 0 -39,924 -100%

Annual Appropriations FTEs 77 77 0 -77 -100%

Total Full-Time Equivalents (FTEs) 77 77 0 -77 -100%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Legacy Roads and Trails

Miles of roads decommissioned 937 2,000 0

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

Please refer to information about funding changes for Legacy Roads and Trails within the Capital Improvement and 

Maintenance Overview section.

Program Overview 

The Legacy Roads and Trails Program has a different mission than the Roads Program. Legacy Roads and Trails 

funds are not used to build new roads, but to repair degraded roads and trails in environmentally sensitive areas 

where further degradation may affect community water supplies or threatened and endangered species. This program 

does substantial reconstruction work. It replaces bridges and culverts, helps fix damaged roads and trails, restores 

unneeded roads and trails to a more natural state, and removes or replaces pipes and other structures that prevent fish 

and other aquatic organisms from reaching their traditional habitat.

Past Performance 

Key outcomes of the Legacy Roads and Trails program include improving the safety of roads for drivers, restoring 

the ability for fish and other aquatic organisms to travel via water under the road (called Aquatic Organism Passage), 

eliminating road sediment flowing to streams, and increasing roads’ ability to withstand floods. The agency

prioritizes projects that benefit Federally-listed fish and other important aquatic species, reconnect significant pieces 

of habitat, improve water quality, protect roads, and leverage funding from partners. With sufficient time, resources, 

and collaboration, the agency has reversed damage to landscapes and restored healthy ecosystems.

Fixing the One Thousandth Culvert to Reconnect Habitat

In FY 2016, the Legacy Roads and Trails program reached a milestone, upgrading its 1,000th culvert to reconnect 

aquatic habitat on National Forest System (NFS) lands. The Forest Service worked with conservation and recreation 

groups, private landowners, and local governments, leveraging funds to reach this goal. 

Undersized culverts can prevent 60 to 90 percent of fish from swimming upstream, cutting native salmon, bull trout, 

and other fish off from their breeding grounds. Fixed culverts, have successfully reconnected thousands of miles of 

fish habitat and helped to restore fish that are important to the economy, recreation, and the environment. 
FY 2018 Budget Justification USDA Forest Service

Capital Improvement & Maintenance 130

Restoring a Degraded Watershed: Skokomish River, WA

The Skokomish River is the most frequently flooded river in Washington State. The river is also critical habitat for 

Chinook salmon, steelhead, and bull trout. These fish are all listed as threatened under the Endangered Species Act. 

In 2010, as part of a nationwide Watershed Condition Framework process, the Forest Service classified the South 

Fork Skokomish as an “at-risk” watershed. Studies highlighted the damaging impacts of roads and the need to 

remove and stabilize roads in the watershed. 

The Forest Service targeted the areas highlighted by the studies, restoring former roads to their natural state and 

stabilizing degrading areas. Years of removing and properly rebuilding old roads in the watershed have paid off. In 

FY 2016, the Olympic National Forest completed the last of the large-scale road removal and stabilization projects 

in the upper watershed. In all, the agency removed 91 miles of road, closed or converted that land to trails, and 

stabilized or improved 85 miles of road with new culverts and drainage features. Much of the recent road restoration 

work was funded through the Legacy Roads and Trails Program, with partner funding from the Washington Salmon 

Recovery Funding Board, the U.S. Environmental Protection Agency, and stewardship receipts from commercial 

thinning timber sales.

As a result, in accordance with the Watershed Condition Framework guidelines, the upper South Fork of the 

Skokomish River area has been reclassified as a “properly functioning watershed”. Restoring this area is also critical 

to allowing salmon to recover in the Hood Canal and Puget Sound. Watershed conditions are still recovering, but 

key watershed processes have largely been restored so watershed conditions and aquatic habitat will continue to 

improve over time. 

Since 2008, Legacy Roads and Trails has:

 restored fish passage at 1,000 sites, providing access to over 1,000 miles of habitat;

 improved almost 18,000 miles of roads for safety and flood resiliency;

 removed 6,722 miles of unneeded roads to reconnect habitat and reduce erosion of soil into streams;

 constructed or reconstructed 141 bridges for safety;

 upgraded or fixed 4,390 miles of trails so people can enjoy areas they love;

 reduced annual road maintenance costs by approximately $3.5 million per year; and

 created or maintained an average of 800-1,200 jobs annually.

Restoring the Skokomish

In a project nicknamed “the Big Dig,” crews removed nearly 100 vertical feet of road in the South Fork of the Skokomish 

watershed to remove an eight-foot culvert (left). The river is returned to its natural state after the road and culvert are 

removed (right). Photo Credits: Forest Service. 
FY 2018 Budget Justification USDA Forest Service

Land Acquisition 131

Land Acquisition

Appropriation Land Acquisition

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Land Acquisition

Annual Appropriations $63,435 $63,314 $7,000 -$56,314 -89%

Land Acquisition Total 63,435 63,314 7,000 -56,314 -89%

Annual Appropriation FTEs 48 52 52 0 0%

Total Full-Time Equivalents (FTEs) 48 52 52 0 0%

Appropriation Acquisition of Lands for National Forests Special Acts

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Acquisition of Lands for National Forests Special Acts

Annual Appropriations $950 $948 $850 -$98 -10%

Acquisition of Lands for National Forests Special Acts Total 950 948 850 -98 -10%

Annual Appropriation FTEs 0 0 0 0 0%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0%

Appropriation Acquisition of Lands to Complete Land Exchanges

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Acquisition of Lands to Complete Land Exchanges

Annual Appropriations $216 $216 $192 -$24 -11%

Acquisition of Lands to Complete Land Exchanges Total 216 216 192 -24 -11%

Annual Appropriation FTEs 0 0 0 0 0%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Land Acquisition (Appropriation)

Number of acres acquired or donated (Discretionary funds) 27,844 22,539 0

Priority acres acquired or donated that reduce the conversion of 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 

(Discretionary funds) 18,370 16,944 0

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.
FY 2018 Budget Justification USDA Forest Service

Land Acquisition 132

Justification of Increases and Decreases

Land Acquisition

The FY 2018 budget request proposes $8,042,000 for the Land Acquisition program, a net decrease of $56,436,000 

from the FY 2017 Annualized CR (including $29,000 for annualization of the 2017 pay increase and $10,000 for the 

2018 pay increase), and a decrease of 0 staff years ($64,478,000 and 52 staff years available in 2017).

A decrease of $56,314,000 in Land Acquisition. The FY 2018 budget proposes $7,000,000 to maintain staff to 

complete current land acquisition transactions No new land acquisition projects are proposed in the FY 2018 budget.

No new land acquisition projects are proposed in the FY 2018 budget.

A decrease of $98,000 for the Acquisition of Lands for National Forest Special Acts. The FY 2018 budget request 

also proposes $850,000 for the Acquisition of Lands for National Forest Special Acts, a net decrease of $98,000 

from the FY 2017 Annualized CR and 0 staff years ($948,000 and 0 staff years available in 2017). This funding 

level will support projects to acquire lands necessary to protect watersheds, minimize soil erosion, and rehabilitate 

specific national forests in Nevada, Utah, California and Arkansas.

A decrease of $24,000 for the Acquisition of Lands to Complete Land Exchanges. The FY 2018 budget request 

proposes $192,000 for the Acquisition of Lands to Complete Land Exchanges, a net decrease of $24,000 from the 

FY 2017 Annualized CR and 0 staff years ($216,000 and 0 staff years available in 2017). This program provides for 

the acquisition of lands with funds collected from the exchange or sale of the National Forest System (NFS) lands 

with State, county, or municipal governments, public school authorities or other non-Federal parties allowed under 

various authorities. 

Program Overview 

The Forest Service prioritizes land acquisitions that have broad support by stakeholders, local officials, and others at 

the local level who want to remove barriers to public access, and attract more visitors who want to recreate in a safe, 

accessible environment.

The agency evaluates proposed recreational access tracts for Land and Water Conservation Fund (LWCF) funding 

based on the following criteria:

 How does the acquisition solve a specific access problem or overcome a barrier to access?

 What is the size and configuration of the tract relative to the NFS lands around it? How much of the tract 

borders existing NFS or other publicly accessible lands?

 What types of recreational access would the land provide?

 Has the public indicated that more or improved access is needed in this area?

 What is the level of local support for the acquisition?
FY 2018 Budget Justification USDA Forest Service

Land Acquisition 133

Acquisition of Lands for National Forests Special Acts and Acquisition of Lands to Complete Land Exchanges 

The agency can also acquire lands in certain national forests for specified purposes, and use funds collected from the 

exchange or sale of NFS lands for other land acquisitions, as 

follows:

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, California, and Arkansas.

Acquisition of Lands to Complete Land Exchanges – This program 

provides for the acquisition of lands with funds collected from the 

exchange or sale of the NFS lands with State, county, or municipal 

governments, public school authorities, or other non-Federal 

parties, allowed under various authorities.

Other Land Acquisition Management Activities

Land Adjustments – Adjusting land ownership with willing 

landowners can secure public recreational use access to reach existing NFS lands and resolve trespasses and 

encroachments. The Forest Service also does land exchanges, purchases lands and interests in land, accepts land 

donations, and sells land through qualifying situations, such as the Small Tracts Act. These activities are all 

categorized as land adjustments. It allows the agency to more effectively implement and align land management 

activities with forest management plans. Additionally, the agency is able to convey properties to non-Federal owners 

where the NFS lands have lost their national forest character or lack public or administrative access through land 

exchanges.

Boundary and Title Management – The program provides professional land surveys, including property boundary 

surveys, locating and marking NFS property lines and administrative boundaries. The agency also describes and 

locates rights-of-way easements and grants, research land titles, provides expert witness testimony, and provide 

geospatial and geodetic services to protect and identify the title, land ownership, and use of the public estate. As of 

FY 2016, the Forest Service has 276,000 miles of property line, of which only 41,000 miles (15 percent) are 

currently marked to Forest Service standards due to limited resources. This program activity, in cooperation with the 

Department of the Interior, Bureau of Land Management and State Licensed Surveyors, manage and execute the 

documentation, marking and posting of property boundaries, write legal descriptions for the acquisition and disposal 

of NFS lands, and locate and prepare legal descriptions for the on-the-ground public identification of 

congressionally designated area boundaries.

This program is instrumental in the identification and validation of land title claims, Tribal land claims, suspected 

trespass and encroachments, and unauthorized uses on NFS lands. The land title/land ownership component includes 

title claim research, inventory, and investigation. Title claims, encroachments, and trespass on NFS lands, often 

resulting from unmarked and unmaintained boundaries, threaten loss of open space, increase the risk of invasive 

species, cause loss or damages to public resources, and reduce access to public lands. There are an estimated 30,000 

incidents of trespassing and encroachments, including abandoned vehicles, buildings and roads, currently on NFS 

lands. Forest Service staff use a Title Claims and Encroachments Management System to inventory, track, and 

monitor these cases. For example, 1,452 title claims were resolved in FY 2016. Forest Service Land Surveyors and 

Lands staff continually enter and update all incidents in the system, helping inform decisions to determine where 

there are significant threats to resource management, how best to invest staff time and resources, and address 

significant threats to resource management. The Land and Realty Management staff manages the official land status 

record system, which compiles legally defensible boundary information and accurate, complete landownership 

records of NFS lands.

Tracking Damaging Encroachments on NFS Lands – Properly marked and maintained boundaries and clear title 

ownership deter and reduce trespass and encroachments, identify public access to the national forests and grasslands, 

and enable land managers to carry out resource priorities on the ground. Absent accurately located and clearly 

National Forest of North Carolina

Buck Creek Gap Recreational Area

 

Forest land acquired and used for recreational 

purposes. Photo provided by the Forest Service
FY 2018 Budget Justification USDA Forest Service

Land Acquisition 134

marked and posted property boundaries, Forest Service staff, contractors, cooperators and adjoining landowners do 

not know where the public estate is located, and are unable to implement projects on the ground. This can lead to 

the inadvertent inclusion of adjoining private lands in project work. 

Past Performance

In FY 2016, the agency maintained and opened public access, completed exchanges or conveyances required by law, 

and implemented a new database to track more than 40,000 title claims and encroachments on NFS lands.

Ensuring Recreational Access for the Public 

Land acquisition funds are used to secure access for the American 

public to their Federal lands for a variety of recreational purposes. 

The agency uses funding to meet public recreation access needs by 

working with willing landowners to secure rights-of-way, 

easements, or fee simple lands that provide or improve public 

access to existing public lands so that the public has large, intact 

areas for recreation. While collectively over 90 percent of land 

acquisition funding supports projects that will provide public 

access, the Forest Service sets aside separate funding, totaling $4.7 

million in FY 2016, for priority recreational access projects.

The Forest Service recognizes the critical need to improve access 

to areas that have high demand for hunting, fishing, and other 

types of recreation. For example, in 2016 the BeaverheadDeerlodge National Forest in Montana used recreational access 

funds for phase one of an 800-acre acquisition in Zeke’s Meadow, 

an area popular for elk hunting. The project included 15 miles of 

trail into the Sapphire Wilderness Study Area and access to a trout 

stream for fishing on Moose Meadow Creek.

Simplifying Agency Criteria

The program continues to refine its business practices to emphasize transparency and bring efficiencies to the field 

and partners. In FY 2016, the Land and Water Conservation Fund (LWCF) criteria were revised to reduce the 

workload to the field and partners, and to make the evaluation process easier to understand. Previously, the agency

used two sets of criteria to evaluate projects – one set at the Regional level, and another set at the National level. All

projects are now evaluated using the same set of criteria. The move to one set of criteria cuts the work required to 

create proposal packages by half, because applicants no longer have to write two applications using different sets of 

criteria, and it is easier for applicants and the public to understand. The Forest Service posted the “2018 LWCF 

Criteria and Guidance” on a public facing website: http://www.fs.fed.us/land/staff/LWCF/.

Land Adjustment

Land adjustment, primarily conducted through land purchases, land exchanges, donations and conveyances, is one 

of many tools to support resource objectives, and is a multi-year process. In FY 2016, the agency exchanged or 

conveyed nearly 74,000 acres. Approximately 70,000 of these acres are from a legislatively mandated conveyance 

from the Tongass National Forest to the Sealaska Corporation. The balance, nearly 4,000 acres spread across 

multiple forests, represent opportunities to achieve agency management objectives and public benefit, such as 

improved recreational access to NFS lands for neighboring communities and the public. The cost and size of such 

exchanges and conveyances vary. The land adjustment program tracks the number of acquisition and donation cases 

that are completed within 18 months of appropriations. A study of five years of completed acquisitions and 

donations found that 83 percent of cases are closed within 18 months. While the majority of land acquisitions take 

18 months to close because two field seasons are required, efforts to improve processing time include working with 

appraisal, survey, and other support staffs to do more due diligence for acquisitions in the late fall and early winter,

which would provide more time for these activities and reduce pressure on staffs to do the bulk of this work in the 

Zeke’s Meadow, Beaverhead-Deerlodge 

National Forest, Montana

The Forest Service used LWCF funding to 

acquire Zeke’s Meadow for hunting and fishing. 
FY 2018 Budget Justification USDA Forest Service

Land Acquisition 135

spring and summer. The program aims to have 60 percent of cases close in the year in which funds are appropriated.
FY 2018 Budget Justification USDA Forest Service

Land Acquisition 136

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FY 2018 Budget Justification USDA Forest Service

Other Appropriations 137

Other Appropriations

Range Betterment Fund

Appropriation Range Betterment Fund

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Range Betterment Fund

Annual Appropriations $2,320 $2,316 $2,065 -$251 -11%

Range Betterment Fund Total 2,320 2,316 2,065 -251 -11%

Annual Appropriation FTEs 6 6 5 -1 -17%

Total Full-Time Equivalents (FTEs) 6 6 5 -1 -17%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Range Betterment Fund

Number of range structural improvements 57 200 195

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $2,065,000 for the Range Betterment program, a decrease of $251,000 

from the FY 2017 Annualized CR (including $5,000 for annualization of the 2017 pay increase and $12,000 for the 

2018 pay increase), and a decrease of one staff year ($2,316,000 and six staff years available in 2017).

In FY 2018, the Budget proposes $2,065,000 to construct and improve structures vital to grazing activities, such as 

fencing, and non-structural measures to improve vegetative health.

Program Overview

The Federal Land Policy and Management Act of 1976, (43 U.S.C. 1751) P.L. 94-579, as amended by the Public 

Rangelands Improvement Act of 1978 (43 U.S.C. 1751(b) (1) P.L. 95-514, authorizes the Range Betterment 

program. It also authorizes the allocation of one-half of grazing receipts from National Forest System (NFS) lands in 

16 western States to rehabilitate, protect, and improve rangelands on the NFS lands from which the receipts were 

collected. This program supports all of the same economic activities associated with the Grazing Management 

program, and complements the work done with appropriated funds, but at a limited scale commensurate with the 

funding available from grazing receipts. These activities enhance or stabilize vegetative conditions, improve water 

quality, maintain riparian areas and stream banks while conserving threatened or endangered plant and animal 

species. Funds may also be used to treat noxious weeds that are present as a result of permitted livestock grazing.

These activities enhance or stabilize vegetative conditions, improve water quality, maintain riparian areas and 

stream banks while conserving threatened or endangered plant and animal species. Grazing activities are vital to 

rural economies with grazing on NFS lands contributing over 14,000 jobs and $706 million to the Nation’s economy 

each year. The program also funds structures such as fences and livestock watering facilities, which are essential to 

grazing permittees for effective livestock management. Funds may also be used to treat noxious weeds that are 

present as a result of permitted livestock grazing. 
FY 2018 Budget Justification USDA Forest Service

Other Appropriations 138

Past Performance 

The work accomplished with the Range Betterment Fund is important to maintain rangeland health and viability and 

to maintain water quality and soil health. The structures constructed or improved through this program help manage 

the movement of animals to provide for proper range management and maintain or improve plant health. Nonstructural rangeland improvement activities, such as removing noxious weeds and invasive plants and brush control, 

reduce fire risk on rangelands by limiting plant densities and/or by changing species composition. The mix of 

activities conducted in FY 2016 included completing range structural improvements, performing rangeland 

vegetation improvement work, and treating noxious weeds.
FY 2018 Budget Justification USDA Forest Service

Other Appropriations 139

Gifts, Donations, and Bequest to Forest and Rangeland Research

Appropriation Gifts, Donations, and Bequests for Forest and 

Rangeland Research

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualize

d CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Gifts, Donations, and Bequests for Forest and 

Rangeland Research

Annual Appropriations $45 $45 $45 0 0%

Gifts, Donations, and Bequests for Forest and 

Rangeland Research Total 45 45 45 0 0%

Annual Appropriation FTEs 0 0 0 0 0%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0%

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $45,000 for the Gifts, Donations, and Bequests for Forest and Rangeland 

Research program, the same level as the FY 2017 Annualized CR. 

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. 

Past Performance

In FY 2016, the Forest Service received donations from individuals and businesses for 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 for travel to training and seminars. 
FY 2018 Budget Justification USDA Forest Service

Other Appropriations 140

Management of National Forest Lands for Subsistence Uses

Appropriation Management of National Forest Lands for 

Subsistence Uses 

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualize

d CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Management of National Forest Lands for Subsistence 

Uses 

Annual Appropriations $2,500 $2,495 $2,225 -$270 -11%

Management of National Forest Lands for Subsistence 

Uses Total 2,500 2,495 2,225 -270 -11%

Annual Appropriation FTEs 12 12 11 -1 -8%

Total Full-Time Equivalents (FTEs) 12 12 11 -1 -8%

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $2,225,000 for the Management for National Forest Lands and 

Subsistence Uses program, a decrease of $270,000 from the FY 2017 Annualized CR (including $10,000 for 

annualization of the 2017 pay increase and $24,000 for the 2018 pay increase) and a decrease of one staff year 

($2,495,000 and 12 staff years available in 2017).

In FY 2018, the budget proposes $2,225,000 which will slightly decrease the agency’s ability to provide 

employment in isolated rural communities, educate subsistence users, develop and enforce regulations, and monitor 

fish and wildlife populations.

Program Overview

The Alaska National Interest Lands Conservation Act (ANILCA) (16 U.S.C. 3101) provides rural Alaskan residents 

a subsistence priority to harvest fish and wildlife on Federal lands over sport and commercial uses. ANILCA 

envisioned that the State of Alaska would manage this rural priority, as was the case for 10 years. However, the 

statute was found to conflict with the Alaska State Constitution, which prohibits granting subsistence priority to only 

rural residents. As a result, the Federal government assumed responsibility for subsistence management on Federal 

public lands in 1990. Alaska is the only State in which Federal agencies have a direct hand in managing the harvest 

of fish and resident wildlife populations on Federal lands. 

The Subsistence program provides vital employment in remote rural areas keeps fish and wildlife harvests 

sustainable, enforces regulations, and educates subsistence users. 

Providing Employment

The subsistence program provides vital employment in isolated rural communities. Many of these are Tribal 

communities, where opportunities are severely limited. By hiring local residents to monitor fish and wildlife 

populations, the program also builds capacity in Tribal governments to participate in State and Federal regulatory 

decisions regarding fish and wildlife issues.

Conserving Fish and Wildlife

Fish and wildlife populations must be monitored for regulatory purposes, and to ensure that populations remain 

sustainable. Monitoring provides local jobs in rural communities with Tribal and other local organizations, informs 

regulatory changes, and indicates when emergency actions are necessary to curtail harvest in-season to assure 

conservation of viable populations.
FY 2018 Budget Justification USDA Forest Service

Other Appropriations 141

Providing for Sustainable Harvests

To ensure that rural residents on Federal lands have priority to harvest fish and wildlife, and that their harvest is 

sustainable, Federal subsistence hunting and fishing regulations must be reviewed each year. Annually, the Forest 

Service, through the interagency Federal Subsistence Board, addresses up to 70 proposed changes to existing fish or 

wildlife regulations, responds to numerous fish and wildlife special action requests (emergency conservation 

actions), and responds to more than 3,000 requests for harvest permits.

Educating Users and Enforcing Regulations

The Forest Service educates subsistence users and others to reduce the need for enforcement action. However, 

enforcement is sometimes necessary to protect subsistence users’ priority to harvest wildlife and to conserve healthy 

wildlife populations. The Forest Service enforces Federal regulations for harvesting fish and wildlife on 22 million 

acres, approximately 75 waterways and navigable lakes, and areas of Prince William Sound. 

Past Performance

To ensure the program is supporting rural 

communities and wildlife populations, the Forest 

Service has implemented a number of critical 

monitoring and management actions. 

Over the past 16 years this program has improved 

information on subsistence resources and uses on 

National Forest System lands in Alaska. The program 

has vastly improved relationships, cooperation, and 

coordination with Tribal governments, rural 

communities, State agencies and other Federal 

agencies. Information provided by this program is 

critical for decision-making by the Federal 

Subsistence Board and Forest Service in-season 

managers for making emergency closures and other 

in-season adjustments to fish and wildlife harvest regulations. The agency is gaining insights on the biology, 

abundance, and use of species important to rural users, such as salmon, moose, deer, mountain goats, and black 

bears. The agency is learning new techniques to lower costs for counting salmon through advanced remote sensing 

technology. It is continuing to learn how to involve, interact and work with the tribes, rural communities and the 

State on complex fish and wildlife management issues.

Supporting Rural Communities 

Over the life of the program, $26 million has been invested to complete 86 projects in the Subsistence Fisheries 

Resource Monitoring Program on lands managed by the Forest Service. Nearly $14 million of that directly funded 

contracts with Tribal governments to perform this work. In 2016, this program funded direct contracts with Tribes 

and supported 30 jobs in rural Alaskan communities with chronically high unemployment rates. 

Together with the Department of the Interior, the Forest Service also expanded consultations on the Federal 

subsistence program, including annual rulemaking, with all Alaskan Tribes and Native Corporations. This complies 

with and Department of Agriculture policies, and respects current and historical roles of native Alaskans in 

managing for their customary and traditional subsistence uses.

Ensuring a Sustainable Harvest

In FY 2016, the Forest Service completed 13 analyses to determine appropriate harvest levels for fish and wildlife 

species, and to determine appropriate management actions to provide for subsistence uses on the national forests in 

Alaska. The Forest Service also analyzed and implemented several actions to address immediate conservation and 

Since the initiation of the Forest Service Subsistence 

Fisheries Monitoring Program in FY 2000, we have worked 

cooperatively with 11 Tribal organizations in Southeast 

Alaska including:

- Central Council of Tlingit and Haida Tribes of Alaska, 

- Yakutat Tlingit Tribe, 

- Sitka Tribe of Alaska, Angoon Community Association, 

- Hoonah Indian Association, 

- Organized Village of Kake, 

- Organized Village of Kasaan, 

- Wrangell Cooperative Association, 

- Klawock Cooperative Association, and

- Craig Cooperative Association, and Hydaburg 

 Cooperative Association. 
FY 2018 Budget Justification USDA Forest Service

Other Appropriations 142

subsistence use issues, including emergency closures to avoid over-harvesting. Also in FY 2016, the agency 

oversaw nine salmon stock assessment projects, one black bear monitoring project, 27 deer surveys, and four 

population surveys for other subsistence-harvested wildlife species.

Working Cooperatively to Restore Salmon

The Hatchery Creek weir (a structure that directs the passage of fish) allows the agency to conduct 

research on salmon. The weir is jointly run by the Forest Service and the Organized Village of Kasaan 

(OVK). The Forest Service provided project guidance, while OVK provided a full time crew to operate 

the weir. In this photo, Russell Snook of OVK prepares to take a sample of scales from a Sockeye 

salmon to determine its age. (Photo Credit: Forest Service)

Using Technology to Conserve Salmon

Left photo – this weir, at the outlet of Kook Lake on Chichagof Island, Southeast Alaska, has video cameras to “capture” 

and count Sockeye salmon - and a floating research camp for technicians. Right photo - Fisheries technicians from the 

Angoon Community Association working in their floating camp. This project is a cooperative effort, funded by the 

Fisheries Resource Monitoring Program, between the Forest Service and the Tribal Government of Angoon. (Photo Credit: 

Forest Service)
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 143

Wildland Fire Management

Appropriation Wildland Fire Management

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Wildland Fire Management

Annual Appropriations $2,386,329 $2,381,795 $2,495,038 $113,243 5%

Wildland Fire Management Total 2,386,329 2,381,795 2,495,038 113,243 5%

Annual Appropriation FTEs 12,248 12,248 10,207 -2,041 -17%

Total Full-Time Equivalents (FTEs) 12,248 12,248 10,207 -2,041 -17%

Wildland Fire Management

Preparedness 1,082,620 1,080,563 1,339,620 259,057 24%

Suppression 811,000 809,459 1,056,818 247,359 31%

Research and Development 19,795 19,757 17,600 -2,157 -11%

Joint Fire Science Program 6,914 6,901 0 -6,901 -100%

Hazardous Fuels 375,000 374,288 0 -374,288 -100%

State Fire Assistance 78,000 77,852 69,400 -8,452 -11%

Volunteer Fire Assistance 13,000 12,975 11,600 -1,375 -11%

Note 1: Prior to FY 2017, the Hazardous Fuels BLI was included under Wildland Fire Management. Hazardous Fuels is fundamentally a land 

management activity and is therefore included under the National Forest System section in this document.

Note 2: The change in FTEs between FY 2017 and FY 2018 is a decrease of 2,041 because this accounts for the FTEs that moved to the National 

Forest System appropriation when Hazardous Fuels was moved. The overall decrease in FTEs for this appropriation is actually 226.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $2,495,038,000 for Wildland Fire Management, an increase of 

$113,243,000 from the FY 2017 Annualized CR (including $5,255,000 for annualization of the 2017 pay increase 

and $15,017,000 for the 2018 pay increase) and a decrease of 2,041 staff years ($2,381,795 and 12,248 staff years

available in 2017).

The decrease in staff years is mainly due to the proposed shift of the Hazardous Fuels program and funding to the 

National Forest System (NFS) account. Hazardous fuels work is fundamentally a land management activity that 

takes place on NFS lands, with some exceptions. Integrating the Hazardous Fuels program with other NFS programs 

which allow more efficient and effective planning and execution of programs and projects that address active forest 

health management.

The Forest Service provides the majority of aviation assets for wildland firefighting efforts on NFS lands, other 

Federal, State, and local jurisdictions. Serving as the contracting source for these assets provides – (1) cost 

effectiveness through economies of scale and other market factors and (2) operational efficiencies in delivering 

critical resources for wildland firefighting efforts. 

The budget will fund up to 20 airtankers and 61 type 1 and 2 helicopters under exclusive use contracts. In FY 2018, 

these contracts will be funded with both Preparedness and Suppression funding. Airtanker contracts only include 

next generation large airtankers because the legacy airtanker contract ends at the end of FY 2017. In 2018, the 

agency will fund one HC-130H aircraft on loan from the U.S. Coast Guard from Preparedness funds. 

As part of a more standard structure for planning and budgeting, the Forest Service will fund all other exclusive use 

aviation contracts with Preparedness funding, and all other call-when-needed aviation contracts with Suppression 

funding, and will use call-when-needed contracts and leverage other Federal and cooperator assets for additional 

aerial firefighting resources, as necessary. 

The split in 2018 for airtankers is based on analysis on the utilization of contracted aviation assets over the last five

years, which shows these assets are used on (1) Forest Service incidents between 45-49 percent of the time, (2) the 
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 144

Department of the Interior (DOI) incidents 16-20 percent of the time, and (4) State and local incidents 35 percent of 

the time. Beginning in 2018, the Forest Service will initiate transition to a full cost recovery business model for 

aviation utilized by cooperating agencies. This will be accomplished through cooperative authorities and 

agreements. 

Starting in 2018, the Forest Service is moving to a more standard structure for planning and budgeting firefighting 

personnel resources by funding all base 8 costs with Preparedness funds. Base 8 is the first eight hours per day 

worked by a firefighter (a permanent firefighter is a person that charges more than 50 percent of time per year to 

Preparedness and Suppression accounts). Since 2004, Forest Service firefighters would charge base 8 to 

Preparedness and, once on a fire, would then charge base 8 to Suppression. This approach will improve 

accountability at both the National and Regional levels and is consistent with DOI business practice. To maintain the 

level of firefighting resources, funding is shifted from the Suppression program and the rolling ten-year average is 

rebased.

As directed by Congress in the FY 2014 Consolidated Appropriations Act, a detailed table of actual and proposed 

estimated spending on fire operations, including aviation resources is included below:

Preparedness and Suppression Costs

(dollars in millions)

Preparedness FY 2016 Enacted FY 2017

Annualized CR

FY 2018

President’s Budget

Firefighters $459 $377 $556

Firefighting Equipment and Support 232 217 217

Aviation Contracts/Support 127 244 244

Agency Cost Pools 265 243 323

Total Preparedness Spending1 $1,083 $1,081 $1,340

Suppression2 FY 2016 Enacted FY 2017

Annualized CR

FY 2018

President’s Budget

Firefighters $420 $433 $287

Fire Suppression Operations and Logistics 867 818 582

Aviation Operations 96 95 90

Interagency and State Fire Support3 205 173 73

Burned Area Emergency Response 11 25 25

Agency Cost Pools 80 87 0

Total Suppression Spending4 $1,6795 $1,631 $1,057

1The Preparedness program ensures that fire management assets, such as large airtankers, helicopters, hot shot crews, and smoke jumpers are

 available to support initial attack response operations on the National Forest System, other Federal, State, and private lands. 

2

Includes both Suppression and FLAME funding in FY 2016 Enacted and FY 2017 Annualized CR.

3

Includes costs incurred by the Forest Service while providing support to the DOI and State fire operations. 

4The Suppression program ensures that fire management assets, such as large airtankers, helicopters, hot shot crews, and smoke jumpers are

available to support extended attack operations at fires on the NFS, other Federal, State, and private lands.

5This total includes costs ($75 million) moved from Preparedness to Suppression.
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 145

Resource Summary FY 2016 to FY 2018

Resource

FY 2016 

Actual

FY 2017

Annualized 

CR

FY 2018

President’s 

Budget

Firefighters (FFTR) – Total is inclusive of categories below 10,000 10,000 10,000

Type I Interagency Hot Shot Crews (20-person) 67 crews

1,340 FFTR 

67 crews

1,340 FFTR 

67 crews

1,340 FFTR 

Other Firefighters 7,940 7,940 7,940

Smoke Jumpers 320 320 320

Prevention Technicians 400 400 400

Engines 900 900 900

Heavy Equipment – Dozers, Tractor Plow Units, Tenders 210 210 210

Helicopters

Type 11 34 28 28

Type 2 33 33 33

Type 32 46 46 46

Airtankers

Legacy Airtankers3 6 4 0

Next Generation Airtankers3 14 16 Up to 20

U.S. Coast Guard aircraft converted airtankers HC-130H 0 1 1

Single Engine Airtankers 0 0 1

Scoopers 2 2 0

1

Includes only agency owned/leased or exclusive use contracted assets.

2

Includes only helicopters whose primary purpose is wildland fire response.

3Numbers reflect maximum number of aircraft allowed under the contracts.

Wildland Fire Management Overview

Fire management activities are subsuming the agency’s budget and jeopardizing the agency’s ability to successfully 

implement the full mission. The size and complexity of fires has grown in recent years as has the frequency of 

catastrophically large fires that risk life and property. At the same time, the wildland-urban interface (WUI) has 

continued to expand. Fire transfers continue to be utilized to ensure that sufficient resources are available for fire 

management expenses, but the associated loss in momentum for critical restoration programs can exacerbate the 

complexity and intensity of fire suppression operations in subsequent years. 

Beginning in FY 2018, the Forest Service, will change agency policy and charge all Base 8 pay costs for fire fighters 

to Preparedness funding, a change that is consistent with the business rule for these costs at the DOI. The shift of 

Base 8 from Suppression to Preparedness necessitates a re-baselining of the 10-year average and recalculation of the 

out-year forecast. To re-baseline, the agency calculated Base 8 expenditures in Suppression from FY 2004 to FY 

2016. The total Base 8 expenditure is comprised of firefighter salary and benefits, cost pools, and Unemployment 

Compensation Insurance. Re-baselining prior to FY 2004 was not necessary because it was not agency policy at the 

time to charge Base 8 to Suppression. The re-baselined 10-year average (with expenditures through the FY 2016 fire 

season) is $1.057 billion – a reduction of nearly $225 million. The reduction to the 10-year average is not the entire 

amount of Base 8 needed when Base 8 shifts to Preparedness. Too adequately cover Base 8 expenditures, a $259

million increase to Preparedness is necessary based on the average of the last three year’s adjusted to 2016 dollars. 

The agency has made great progress in its continued focus on risk-based decision making when responding to 

wildfires, and in FY 2018 will continue this important work to better inform decision makers on the risks and 

tradeoffs associated with wildfire management decisions. In FY 2018, the Forest Service will continue to work with 

other Federal agencies on continuous improvement and learning on how risk management is practiced in wildland 

fire management to solidify the concept of shared risk, a central tenet of the National Cohesive Wildland Fire 

Management Strategy (Cohesive Strategy). The Cohesive Strategy establishes a shared vision between Federal and 

non-Federal entities for managing wildland fires. 

The Wildland Fire Management program also 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.
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 146

Preparedness

Budget Line Item Preparedness

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Preparedness

Annual Appropriations $1,082,620 $1,080,563 $1,339,620 $259,057 24%

Preparedness Total 1,082,620 1,080,563 1,339,620 259,057 24%

Annual Appropriations FTEs 7,359 7,170 7,030 -140 -2%

Total Full-Time Equivalents (FTEs) 7,359 7,170 7,030 -140 -2%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Preparedness

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

controlled during initial attack. -0.4% 0.2% 0.2%

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $1,339,620,000 for the Preparedness program, an increase of

$259,057,000 from the FY 2017 Annualized CR (including $3,619,000 for annualization of the 2017 pay increase 

and $10,343,000 for the 2018 pay increase) and a decrease of 140 staff years ($1,080,563,000 and 7,170 staff years 

available in 2017).

The Forest Service is moving to a better, more disciplined budget structure with the goal of improving 

accountability at both the National and Regional level, and added functionality for planning budgetary resources to 

support the appropriate level of firefighting resources. Base 8 is the first eight hours per day worked by a fire fighter 

(a permanent fire fighter is a person that charges more than 50 percent of time per year to Preparedness and 

Suppression accounts). Since 2004, Forest Service firefighters would charge Base 8 to Preparedness and, once on a 

fire, would then charge Base 8 to Suppression. This business practice was different than the Department of the 

Interior (DOI) where Base 8 is always charged to Preparedness; even when working a wildland fire. With the 

proposed increase, Forest Service firefighters will charge all Base 8 to Preparedness and, per the jointly developed 

business rules, fund additional hours spent on a fire to Suppression. This funding was shifted from the Suppression 

program. The decrease in staff years is due to increased pay costs.

Program Overview

A robust Preparedness program supports initial attack operations and is essential to reducing the costs associated 

with wildfire suppression. The Forest Service utilizes the Preparedness program to maintain an organization that 

ensures timely, appropriate, risk-informed, and effective response. The Preparedness program ensures that fire 

management assets, such as large air tankers, helicopters, hot shot crews and smokejumpers, are available to support 

response operations on National Forest System, other Federal, State, and private lands. Response efforts reduce the 

threats to life and values at risk, promote ecosystem integrity and are consistent with land management objectives 

laid out in the National Cohesive Wildland Fire Management Strategy (Cohesive Strategy Managing wildland fire

response requires partnerships across Federal, State, and private entities, because wildfires do not follow 

jurisdictional boundaries. Successful firefighting has evolved into a robust, coordinated, multi-jurisdictional effort. 

Leveraging the capabilities of Federal, State, and local partners has increased wildland firefighting capacity 

nationwide. Technological improvements have helped enhance decision support and response strategies. 
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 147

Preparedness also supports other elements of wildland fire management 

efforts, including planning, prevention, education, information 

technology development, and decision support systems. The 

Preparedness program supports internal and external training and 

education, development and advancement of firefighting technology, 

and organizational learning. In addition, the agency has developed 

several outreach and educational tools to enhance fire-adapted 

community practices, including the Fire Learning Network, Fire 

Adapted Communities, Ready Set Go!, and the Wildland Fire 

Assessment. 

Past Performance

During the 2016 fire season, the agency used 14 next generation 

airtankers and continued to fly six legacy airtankers under exclusive use 

contracts. This expanded capability and increased retardant delivery 

capacity complemented the efforts of ground-based firefighters. 

The Forest Service updated the 2012 Large Airtanker Modernization 

Strategy per Congressional direction to continue modernizing our fleet 

through 2020. The agency also continued the Aerial Firefighting Use and Effectiveness (AFUE) study to determine 

how next generation airtankers integrate with other firefighting resources and improve overall response 

effectiveness. The data collection effort is ongoing and will be implemented on new airtankers as they become 

operational. 

The Forest Service continues to improve and enhance predictive capabilities and decision support tools to make the 

best decisions on every wildfire event. In recognition of the extreme risk that wildland fire operations present, the 

agency is committed to reducing unnecessary exposure and risk for firefighters and others. The Life First initiative, a 

cornerstone of this safety commitment, focuses on targeted safety conversations with Forest Service employees, 

partners, and collaborators. The interactive sessions encourage and facilitate agreements among leaders and 

participants around what each can do, and will do, to eliminate unnecessary exposure and risk during fire seasons. 

The Forest Service strives to minimize impacts of wildfire to life and property in decisions, to ensure the highest 

level of safety for our firefighters, and to restore wildfire to landscapes as a natural and beneficial change agent. In 

FY 2016, the agency used tools within the Wildland Fire Decision Support System to provide fire managers with the 

real-time ability to determine the likelihood that a wildfire will affect valuable resources. By focusing on risk, the 

intersection of threat (fire spread), and values at risk of loss, fire managers can employ suppression resources in the 

right places. 

The Forest Service has also established a new multi-dimensional wildfire review process. This process examines 

significant fires as they are burning to identify cost and risk drivers and to establish baseline data regarding essential 

elements of response. The process helps review studies the impacts of decisions, investigate significant fires, and 

ensure continued learning. The reviews support the Life First initiative by helping the agency learn and understand 

how to eliminate unnecessary exposure and make better risk-informed decisions. 

Safe, aggressive initial attack response is often the best suppression strategy to keep unwanted wildfires small and 

costs down. The Forest Service evaluates initial attack success, which depends on several factors including weather, 

location of the wildfire, values at risk, and management objectives. The agency’s initial attack success rate – the 

percent of fires that were suppressed before they reached 300 acres in size – was 96.9 percent in FY 2016. 

Smokejumper Training

Members of the McCall Smokejumpers 

travel in a Sherpa aircraft to a training 

jump over the Payette National Forest, 

Idaho. Photo Credit: Kari Greer, Forest 

Service
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 148

Suppression

Budget Line Item Suppression

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Suppression

Annual Appropriations $811,000 $809,459 $1,056,818 $247,359 31%

Suppression Total 811,000 809,459 1,056,818 247,359 31%

Suppression Cap Adjustment 0 0 0 0 0%

Annual Appropriations FTEs 2,926 3,100 3,040 -60 -2%

Total Full-Time Equivalents (FTEs) 2,926 3,100 3,040 -60 -2%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Suppression

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

Cost Index (SCI) 28.3% 24.0% 24.0%

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

exceed a Stratified Cost Index (SCI) 28.4% 26.0% 26.0%

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $1,056,818,000 for the Suppression program, an increase of 

$247,359,000 from the FY 2017 Annualized CR (including $1,565,000 for annualization of the 2017 pay increase 

and $4,473,000 for the 2018 pay increase), and a decrease of 60 staff years ($809,459,000 and 3,100 staff years 

available in 2017).

In recent USDA Forest Service budget justifications, the 10-year average of Suppression expenditures has been used 

in combination with the Federal Land Assistance, Management, and Enhancement (FLAME) Act account to fully 

fund the 10-year average. Specifically, Suppression was requested at 70 percent of the 10-year average and the 

FLAME request was funded at approximately 30 percent of the 10-year average; together, fully funding the 10-year 

average. There are inefficiencies in operating between two accounts for one purpose; therefore, the FY 2018 

President’s Budget proposes to fully fund the 10-year average for Suppression, currently calculated at $1.057 billion 

(see Table 1), in the base program and not request funding in the FLAME account to maximize operational and 

administrative efficiencies. 
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 149

Table 1 – Forest Service Suppression Obligations FY 2007-FY 2016*

(dollars in thousands)

*The 10-year average has been rebaselined for FY 2018. Per the Preparedness Program Justification of Increases and Decreases, Base 8 

expenditures are to be accounted for in Preparedness and not in Suppression. Based on this Change,

and adherence to established business rules, the Base 8 expenditures over the past 10 years were removed from the

10-year average calculation. This resulted in a decrease of the 10-year average from FY 2017 to FY 2018 of $225,000,000.

Program Overview

The Suppression program is the primary funding source for wildfire extended attack suppression response and 

maintains our strong emergency response role of working with other Federal agencies, State, Tribal, and local 

government partners to protect life and property. The Suppression program also helps restore and maintain resilient 

landscapes by managing naturally ignited, unplanned wildfires on National Forest System (NFS) lands, and helps to 

accomplish resource management, ecological restoration, and fuels reduction goals.

The program funds firefighters and equipment in direct support of wildfire incidents, aviation asset operations, 

incident support functions, and wildfire management administration. It provides resources in an appropriate, risk 

informed, and effective manner to respond to wildland fires that are on or threatening NFS lands or other Federal 

and non-Federal lands under fire protection agreements. The Forest Service provides Suppression resources to the 

Department of the Interior incidents on a reciprocal, non-reimbursement basis. The Suppression program also funds 

personnel and resources for:

 Use of wildland fire to improve forest condition - 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. This is referred to as Attainment of Resource Benefits.

 Burned Area Emergency Response - Post-fire actions on NFS lands to prevent or minimize 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 - Increasing readiness and response capability when predicted or burning conditions are 

Fiscal Year

Net Nominal 

Suppression 

Obligations

GDP Inflator

[2009=1.00]

GDP Deflator

[2016=1.00]

Adjusted 

Obligations

[2016=1.00]

Rolling

10-year 

Average

2007

 

941,381 0.9642 0.8550

 

1,101,011 

2008

 

1,001,083 0.9970 0.8841

 

1,132,319 

2009

 

523,383 1.0000 0.8868

 

590,218 

2010

 

412,323 1.0151 0.9002

 

458,060 

2011

 

873,442 1.0371 0.9197

 

949,745 

2012

 

1,243,740 1.0592 0.9393

 

1,324,174 

2013

 

1,140,116 1.0748 0.9531

 

1,196,231 

2014

 

964,339 1.0904 0.9669

 

997,327 

2015

 

1,443,369 1.1058 0.9806

 

1,471,954 

2016

 

1,347,136 1.1277 1.00 1,347,136 $1,056,818 
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 150

extraordinary or are judged imminent by the Incident Commander. 

 Non-fire incident response - 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.

All fires are managed using risk management protocols that emphasize firefighter and public safety, and determine 

the most effective response. Forest Service managers use the Wildland Fire Decision Support System to assess risk 

and tactical implementation strategies on wildland fires. This system provides access to data and decision support 

tools and documents to inform fire-management decisions and long-term operational plans. 

Past Performance 

During the FY 2016 fire season, the Forest Service

experienced above average wildfire activity in California, 

while the remainder of the country experienced average or 

below average activity. Location is the most important 

variable contributing to significance, severity, and cost of any 

wildfire. It is important to look beyond national statistics and 

focus on regional and local data to understand the FY 2016 

fire season. Wildfires occurring in California present unique 

challenges given the population and infrastructure density. In 

California, every fire inevitably affects large population 

centers and requires extensive firefighting resources to 

manage, translating to disproportionately high suppression 

costs compared to other areas of the country. 

In FY 2016, there were four wildfires in California each 

costing in excess of $25 million, with one costing over $80 

million. The Pioneer fire in Idaho, at nearly $70 million, was 

the only fire in this cost range outside of California during FY 

2016. The severe drought in California magnified the challenges presented by high fuel loads and dry conditions, so 

every wildfire had the potential to become a catastrophic event. Managing wildfires under extreme conditions 

requires substantial firefighting resources and full coordination amongst the entire wildland fire community.

Nearly 6 million acres burned across the agency all jurisdictions and deployed over 21,000 firefighters to support 

response operations in FY 2016. Although, the Forest Service did not reach the most critical circumstances 

described as Preparedness Level 5 nationally this year, significant fire activity occurred throughout the country. The 

agency managed resources to achieve ecological or risk benefit on over 932,000 acres. These beneficial fires moved 

ecosystems toward specific desired conditions for forests and grasslands based on land management objectives 

identified in Land and Resource Management Plans or other planning documents. Suppression expenditures for the 

Forest Service totaled slightly more than $1.6 billion. 

The agency uses the Stratified Cost Index (SCI) to estimate suppression costs for each fire using several factors. 

Nationally, the SCI provides data to evaluate the entire fire season, and trends to compare year-to-year. The 

percentage of incidents not contained in initial attack that exceeded the SCI in FY 2016 was 28.3 percent—an 

increase from 24.8 percent in FY 2015. 

The agency continues to refine management of large and complex wildfires, focusing on improving risk 

management protocols and striving for management efficiency. The agency makes wildfire management decisions 

with the support of a robust system of checks and balances, and in collaboration with affected partners. The final 

costs of any wildfire are an outcome of these decisions, and are commensurate with identified values at risk and the 

safety of both the public and agency employees.

Rough Fire, California, 2015

An engine crew member uses a hose to suppress fire 

on the Rough Fire, Sequoia and Sierra National 

Forests. Photo Credit: Kari Green, Forest Service
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 151

The agency continually strives to improve understanding of the factors affecting fire behavior, and how to leverage 

response assets. In partnership with Forest Service researchers, Fire and Aviation Management specialists are 

developing tools to identify where to leverage naturally occurring fires under the right conditions. 
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 152

National Fire Plan Research and Development

Budget Line Item Research and Development

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Research and Development

Annual Appropriations $19,795 $19,757 $17,600 -$2,157 -11%

Research and Development Total 19,795 19,757 17,600 -2,157 -11%

Annual Appropriations FTEs 99 99 93 -6 -6%

Total Full-Time Equivalents (FTEs) 99 99 93 -6 -6%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Research and Development

Customer satisfaction index score for R&D 76 76 77

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $17,600,000 for the National Fire Plan Research and Development 

(R&D) program, a decrease of $2,157,000 from the FY 2017 Annualized CR (including $48,000 for annualization 

of the 2017 pay increase and $136,000 for the 2018 pay increase), and a decrease of six staff years ($19,757,000 and 

99 staff years available in 2017).

The FY 2018 President’s Budget proposes $17,600,000 to provide information and tools managers use to reduce the 

negative impacts and to enhance the beneficial effects of fire and fire management for society and the environment. 

At the proposed funding level, the social fire science portfolio will be eliminated.

Program Overview

The National Fire Plan (NFP) Research and Development (R&D) program conducts research to support 

management of fire-affected landscapes to sustain forest health, reduce the risk of damaging wildland fires, and 

ensure public and firefighter safety. The NFP program supports wildland fire management and research activities for 

the benefit of land managers and policy makers. This research provides the foundation for the development and 

delivery of information, products, and tools to respond to fires safely and effectively, help communities and 

homeowners mitigate fire risk, restore resilient landscapes, and support integrated, risk-based management.

This program is managed under a strategic plan outlining five focus areas: (1) core fire science, (2) ecological and 

environmental fire science, (3) social fire science, (4) integrated fire and fuels management research, and (5) science 

application. The program’s goal is to provide knowledge and tools managers can use to reduce the negative impacts 

of wildfire and enhance the beneficial effects of fire and fire management. These investments help fire managers, 

policy makers, and citizens make scientifically sound wildfire and fuels management decisions and invest fuel and 

fire funding. These decisions help to minimize the negative social, economic, and ecological impacts of fire and 

avoid environmental damage. 

The value of the NFP R&D program includes protection of timber and other natural resources; maintenance of 

recreation opportunities; protection of communities and wildlife in the wildland-urban interface; and creation of 

resilient landscapes. The findings of this research program help to guide fire suppression efforts, demonstrate and 
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 153

account for the effectiveness of Hazardous Fuels treatments, inform the allocation of funding for fuels management 

and restoration, and identify opportunities to use biomass from forest thinning treatments.

Past Performance

Forest Service researchers evaluated the ability to restore wildfire at landscape scales within two wilderness areas in 

the southwestern U.S. and determine how that information could be related elsewhere. This study summarizes the 

effects of fire management practices on key resources, documents common challenges in implementing these 

practices, and provides lessons for how to address them. The research demonstrated that naturally ignited wildfires 

can be used to reduce fuels and restore open forest structure at large landscape levels. Restoring wildfire at 

landscape levels requires patience and coordination as well as public communication and education.

The Prescribed Fire Combustion and Atmospheric Dynamics Research Experiment (RxCADRE) — is helping 

improve modelled predictions of how wildland fires spread and smoke behavior. These modelled predictions are 

designed to support decision-making on fighting wildland fires and on reducing the air quality and soil impacts of 

prescribed burns. An updated edition of The Guide to Prescribed Fire in Southern Ecosystems, which was published 

in 2016, is designed to help resource managers’ plan and execute prescribed burns in southern forests and 

grasslands. This publication reviews the history and ecology of fire; reasons for using prescribed fire in the South; 

weather and fuel conditions that are key to controlling fire; meeting burn objectives; and techniques for firing and 

evaluating burns. It also reviews research aimed at increasing the precision of smoke management, which is 

particularly important as human populations expand into areas where prescribed burning is needed.

Smoke from Wildfires near Los Angeles, June 2016

The smoke from wildfires burning in Angeles National Forest fills the sky behind the Los 

Angeles skyline on June 20, 2016. The Erskine fire was estimated to be about 70 square miles 

and at the time of this reporting was the state's largest wildfire out of the nine ongoing 

wildfires. The fire at the time of this reporting was said to have claimed the lives of two 

people and had destroyed 200 structures. About 2,000 firefighters were assigned to fight the 

fire, however, officials estimated that it was only 45 percent contained at the time of this 

report. 
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 154

Joint Fire Science Program

Budget Line Item Joint Fire Science Program

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Joint Fire Science Program

Annual Appropriations $6,914 $6,901 0 -$6,901 -100%

Joint Fire Science Program Total 6,914 6,901 0 -6,901 -100%

Annual Appropriations FTEs 8 8 0 -8 -100%

Total Full-Time Equivalents (FTEs) 8 8 0 -8 -100%

Justification of Increases and Decreases

The FY 2018 President’s Budget does not propose funding for the Joint Fire Science Program, a decrease of 

$6,901,000 from the FY 2017 Annualized CR.

At the FY 2018 budget request level, Forest Service participation in the Joint Fire Science Program (JFSP) would be 

eliminated. The JFSP would focus on completing existing projects and standing down science exchange with 

managers. New research in the Smoke Management and in the Fuels Treatment lines-of-work would be eliminated, 

as would new research in the Emerging Management Needs initiative. General fire research in the agency would be 

conducted through the National Fire Plan and the Forest and Rangeland Research appropriations.

Program Overview

The JFSP is an interagency fire research and development partnership between the Department of the Interior and 

the Department of Agriculture. The JFSP contributes to sound decision-making and project implementation through 

research tailored to the needs of fire and vegetation managers, communities, and wildfire responders. 

Past Performance

The JFSP initiated the Fire and Smoke Model Evaluation 

Experiment (FASMEE), which is a multidisciplinary, 

multiagency project to improve wildland fire behavior and 

smoke models. Participants in the FASMEE include the 

Department of the Interior, Forest Service, Department of 

Defense, National Oceanic and Atmospheric Administration, 

National Aeronautics and Space Administration, Environmental 

Protection Agency, and leaders in the academic community. 

The main focus of FASMEE is to work with the community 

that studies fire behavior and smoke modelers to develop 

measurement-based databases from experimental burns. This 

provides a consistent and comprehensive foundation for 

progressing and transitioning existing and new models into 

operational use.

The JFSP continues to enhance collaboration between 

practitioners and scientists through the nationwide Fire Science 

Exchange Network. Membership of the 15 Fire Science 

Exchanges continues to expand, particularly in the State, local, 

Tribal, and non-governmental sectors. The Exchanges last year 

conducted over 3,000 active learning engagements including webinars, seminars, workshops, and field trips. 

Forest Service Research and Development 

Science Fire Risk Assessment 

Forest Service R&D scientists convene a 

multidisciplinary, multiagency team to improve 

wildland fire behavior and smoke models
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 155

Highlights include focus on the implementation of prescribed fire, forest disturbance adaptation, and resilient 

communities.

In FY 2016, scientists used existing databases and survey data that characterize the role of socioeconomic factors, 

biophysical conditions, and sociocultural differences to determine the public’s confidence in and response to 

wildfire risk mitigation activities. This research allows an assessment of the public’s perceptions related to fuel 

treatments and the wildland-urban interface (WUI) within a national, comparative framework. Data developed by 

this research project will continue to help land and fire managers to better understand public perceptions of issues 

surrounding the full range of values associated with the WUI
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 156

State Fire Assistance

Budget Line Item State Fire Assistance

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

State Fire Assistance

Annual Appropriations $78,000 $77,852 $69,400 -$8,452 -11%

State Fire Assistance Total 78,000 77,852 69,400 -8,452 -11%

Annual Appropriations FTEs 57 56 44 -12 -21%

Total Full-Time Equivalents (FTEs) 57 56 44 -12 -21%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

State Fire Assistance

Communities assisted (number) 13,814 12,500 11,100

(1) The Past Performance narrative below provides detailed information on aspects of program management, strategies, 

and/or improvements in relation to the accomplishments associated with the performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $69,400,000 for the State Fire Assistance program, a decrease of 

$8,452,000 from FY 2017 Annualized CR (including $23,000 for annualization of the 2017 pay increase and 

$65,000 for the 2018 pay increase) and a decrease in 12 staff years ($77,852,000 and 56 staff years available in 

2017).

In FY 2018, the budget request proposes $69,400,000 to assist State and local response agencies in providing

wildland fire response.

Program Overview

The State Fire Assistance (SFA) program provides financial assistance through partnership agreements with State 

Foresters for the prevention, mitigation, control, and suppression of wildfires on non-Federal lands. This funding 

helps State and local agencies to implement pre-fire prevention and mitigation programs and to develop and 

maintain an effective wildfire suppression capability as described in a State’s Forest Action Plan. This program 

emphasizes pre-fire planning in the wildland-urban-interface (WUI) and hazardous fuels mitigation near 

communities at risk of catastrophic wildfire. Training funded by SFA provides effective and safer initial response to 

wildfire, as the first responders on almost 75 percent of wildfires are local fire departments or State agencies. 

Additionally, the SFA program improves capacity to assist other Federal, State, and local agencies in aiding 

communities affected by non-fire emergencies such as hurricanes and floods.

State Foresters direct a portion of SFA funds toward helping communities become fire-adapted. This is done by 

conducting hazardous fuel mitigation projects, planning and preparing for wildfire, creating defensible community 

space, and obtaining equipment to respond to and mitigate fire. This program maximizes cross-jurisdictional 

partnerships to help homeowners and communities in fire-prone areas take responsibility for fire protection. Helping 

communities become more fire-adapted reduces the risk and cost of large wildfires. More than 46 million homes in 

the United States, representing 40 percent of the Nation’s housing units, are located in fire-prone WUI areas. This 

number is expected to increase. Creating more fire-adapted communities reduces suppression and structural 

protection costs without compromising firefighter or civilian safety. 
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 157

Past Performance

In FY 2016, the SFA program focused on mitigating the risk of wildland fire in communities taking an active role in 

preparing and planning for wildland fire. In the West, 84 percent of the WUI is still undeveloped; however, since 

1990, 60 percent of new homes nationwide in the U.S. were built in the WUI21.

The agency works proactively with communities to help them become more fire adapted and resilient in order to 

lessen the impacts of wildland fire. This proactive approach is integral to reducing suppression costs and to 

ultimately restoring wildlands to functionality and fire-resiliency. In FY 2016, the SFA program provided over $3 

million of funding to support 4,106 risk assessments and fire management planning projects in 3,235 communities. 

Another component of mitigating risk, especially in the WUI, is prioritizing and treating hazardous fuels at the 

landscape scale. For example, SFA funds have been used to help implement fuels reduction projects at Santa Fe 

Ranch, a 17,000 acre subdivision in Colorado. More than 1,700 acres of fuel-breaks have been developed since 

2006, providing improved access for fire suppression efforts and improved egress for residents22. The SFA program 

provides Federal assistance in treating fuels on State and private lands, which make up most of the WUI. In FY 

2016, SFA provided over $11 million for hazardous fuels treatments in the WUI, directly paying for 95,506 acres of 

hazardous fuels treatment and leveraging treatment of another 50,812 acres with in-kind partner support. These 

projects lowered fire risk in 902 communities. In addition, over 6,500 SFA prevention and education programs 

conducted in FY 2016 benefitted 7,751 communities.

In FY 2016, SFA focused on Preparedness for State and local firefighting resources to help them respond effectively 

to all hazard events and wildland fire situations, including those on Federal lands. Close to 65 million acres of WUI 

are adjacent to or near National Forest System lands, and local firefighters are often the first on the scene of a 

wildland fire. In FY 2016, the SFA program supported nearly $11 million in Preparedness activities and almost $9 

million in suppression operations. In addition, SFA funded the training of 31,588 firefighters and invested nearly $6 

million in the purchase, maintenance, and rehabilitation of needed firefighting equipment for state agencies. In total, 

SFA assisted 13,814 communities in FY 2016.

Community assistance through the SFA contributes to the National Cohesive Wildland Fire Strategy (Cohesive 

Strategy), a collaboration among all levels of government and non-government organizations to seek all-lands 

solutions to wildland fire management. The Fire Adapted Communities Network (FAC Net), which the Forest 

Service, The Nature Conservancy (TNC), and the Watershed Research and Training Center jointly support and 

manage, is one of the best examples of the Cohesive Strategy at work. Members of the FAC Net use a tested 

learning-network approach to accelerate their shared vision of the entire Nation adapted community concepts. 

Several states, including California, Nevada, and Washington, support independent statewide networks modeled 

after the FAC Net. The FAC Net workshop participants agreed that the exchanges were worthwhile and reported a 

desire to continue sharing knowledge and conversation in the future.

In 2015, the Colorado State Forest Service, the Forest Service, TNC, and Denver Water convened Federal, State, 

local, and non-profit partners to engage in a five-year collaborative to accelerate strategic landscape scale forest 

treatments in the three sub-basins of the Upper South Platte watershed. The watershed is the source of more than 80 

percent of the drinking water for the Denver metropolitan area. With financial support from the SFA program, the 

Upper South Platte Partnership will facilitate silvicultural treatments to reduce wildfire risk and severity, while 

ensuring a clean and abundant water supply for Denver’s residents. The five year collaborative effort continued 

through FY 2016 with three of the 11 planned projects being completed for a total of 150 acres treated.

 

22 Council of Western State Foresters. State Fire Assistance – Building National Response to Wildfire. 2014. 

http://www.westernforesters.org/sites/default/files/state-fire-assistance-building-the-national-response-to-wildfire.pdf
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 158

Volunteer Fire Assistance

Budget Line Item Volunteer Fire Assistance

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualize

d CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Volunteer Fire Assistance

Annual Appropriations $13,000 $12,975 $11,600 -$1,375 -11%

Volunteer Fire Assistance Total 13,000 12,975 11,600 -1,375 -11%

Annual Appropriations FTEs 0 0 0 0 0%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0%

Performance Measure Accomplishment and Targets (1)

FY 2016 FY 2017 FY 2018

Actual Target Target

Volunteer Fire Assistance

Volunteer fire departments assisted (number) 14,228 8,500 7,650

(1) The Past Performance narrative below provides detailed information on aspects of program 

management, strategies, and/or improvements in relation to the accomplishments associated with the 

performance measures.

Justification of Increases and Decreases

The FY 2018 President’s Budget proposes $11,600,000 for the Volunteer Fire Assistance program, a decrease of 

$1,375,000 from the FY 2017 Annualized CR.

The FY 2018 the budget request proposes $11,600,000 to provide financial assistance to communities of 10,000 or 

fewer residents to strengthen and maintain fire suppression capacity.

Program Overview

The Volunteer Fire Assistance (VFA) program provides technical and financial assistance to qualifying local 

volunteer fire departments that protect communities with populations of 10,000 or fewer. The VFA program, 

delivered through the State Foresters, supports local fire preparedness and suppression efforts to protect State and 

private forestlands threatened by wildfire. The VFA provides grants for equipment, training, and technical assistance 

in organizing or expanding volunteer fire departments where little or no fire protection is available. There are over 

26,000 rural and predominantly volunteer fire departments nationwide. More than 1.5 billion acres in the U.S. are in 

private ownership or are State or locally owned, and State and local entities are responsible for basic fire protection 

and firefighting on those lands. Fire-caused loss of human lives, natural resources, crops, homes, facilities, and other 

rural businesses can displace people, eliminate jobs, and further depress rural communities. The VFA program helps 

to enhance stability in rural areas by reducing these losses. 

Rural fire departments are the first line of defense against fires and other emergencies in rural areas, and they 

provide nearly 80 percent of initial attack on all wildland fires in the U.S. Yet these departments often lack the 

financial and technical resources to obtain the equipment and training necessary to ensure safe and effective wildfire 

response. In recent years, fewer citizens are available and willing to volunteer as fire fighters, and small rural 

communities often lack the resources to properly equip and train these volunteer departments. Without the 

cooperation of rural fire departments, the agency would be unable to provide the level of fire response needed to 

keep fires near communities small.
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 159

Volunteer fire departments also play a key role in educating constituents about fire adaptation and the need for 

mitigation, and they help meet expanded fire protection needs within the wildland-urban-interface in the context of 

the Cohesive Strategy. Through this education and outreach, local communities are better prepared to face the 

challenges of longer and more severe fire seasons.

Recipients match grants dollar-for-dollar to maximize the value of the Federal investment. Program funding helps 

Federal, State, and local agencies deliver a uniform and coordinated response to wildfire by training, equipping, and 

organizing volunteer fire departments. Through this program, the agency provides support that helps rural 

communities prepare for, mitigate, and respond to natural and human-caused fires to prevent the fires from 

spreading to lands managed by other jurisdictions. All of these initiatives combine to create more fire-adapted 

communities.

Past Performance 

In FY 2016, we targeted VFA investments to state-identified areas of highest risk and greatest need. Over 14,000 

communities used VFA funds to train almost 17,000 firefighters and expand or organize 170 fire departments. 

Communities also received $8 million of VFA funds for the purchase, rehabilitation, and maintenance of equipment. 

The number of volunteer fire departments assisted fluctuates annually depending on the types and cost of individual 

projects States choose to implement. 

New Holland, SC Volunteer Fire Department

The New Holland, SC Volunteer Fire Department received their first Volunteer Fire Assistance grant in 

2016, enabling 10 firefighters to be issued new TechGen wildland fire gear (eight pictured above). A 

community of less than 3,000 people, the $3,591 grant awarded to the Volunteer Fire Department is 

significant. The Secretary/Treasurer of the Volunteer Fire Department said “This grant means a lot to 

this department and goes a long way in aiding us to fulfill our mission and serve our community.” 

(Photo credit: R.C. Lee/New Holland Volunteer Fire Department)
FY 2018 Budget Justification USDA Forest Service

Wildland Fire Management 160

FLAME Wildfire Suppression Reserve Fund

Appropriation FLAME Wildfire Suppression Reserve Fund

 (dollars in thousands)

FY 2016 

Enacted

FY 2017 

Annualized 

CR

FY 2018 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

FLAME Wildfire Suppression Reserve Fund

Annual Appropriations $823,000 $821,436 0 -$821,436 -100%

FLAME Wildfire Suppression Reserve Fund Total 823,000 821,436 0 -821,436 -100%

Annual Appropriation FTEs 0 0 0 0 0%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0%

FLAME Wildfire Suppression Reserve Fund

FLAME Wildfire Suppression Reserve Fund 823,000 821,436 0 -821,436 -100%

Justification of Increases and Decreases

The FY 2018 President’s Budget does not propose funding for the FLAME Wildfire Suppression Reserve Fund, a 

decrease of $821,436,000 from the FY 2017 Annualized CR.

Program Overview

The FLAME Wildfire Suppression Reserve Fund is a separate Treasury account and distinct appropriation providing 

funds to cover fires escaping initial attack (response) that are sufficiently large and complex, or when overall fire 

activity is at such high levels that the resources appropriated to the Suppression account are about to be completely 

obligated. It is a reserve fund intended to mitigate the impacts of increasing fire borrowing to support extreme 

wildfire suppression costs and the resulting adverse effects on other agency programs. As a practical matter, these 

funds are not a reserve but part of base program as suppression costs have exceeded the base appropriation in all but 

two years since the 2009 enactment of the FLAME Act. There are inefficiencies in operating between two accounts 

for one purpose; therefore, the FY 2018 President’s Budget proposes to fully fund the 10-year average for 

Suppression, currently calculated at $1.057 billion and not request funding in the account to maximize operational 

and administrative efficiencies.

Past Performance

During the 2016 fire season, the agency experienced above average wildfire activity in California, while the 

remainder of the country experienced average or below average activity. The most significant fire activity occurred 

in August, during which there were several times when approximately 21,000 firefighters were supporting wildfire 

incidents. Nationally, the agency reached a preparedness level of four for 14 days, meaning that three or more 

geographic areas required extensive resources, and that competition existed between geographic areas for resources. 

Maintaining this high level of activity required significant financial resources, and therefore the Secretary of 

Agriculture issued a declaration in August that $675.2 million of funds in the FLAME account needed to be 

transferred due to the imminent exhaustion of funds within the Suppression account. 

The Forest Service will issue an annual report that describes the obligations and expenditures of amounts transferred 

from the FLAME account in FY 2017, as required by the FLAME Act. 

 
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 161

Permanent Appropriations

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Brush Disposal

New Budget Authority $7,695 $8,000 $8,000 0

Program Level 11,801 20,000 16,000 -$4,000

Full-Time Equivalents (FTEs) 67 67 67 0

Hardwood Technology Transfer and Applied Research

New Budget Authority 0 0 0 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Timber Salvage Sales

New Budget Authority 35,919 26,000 29,000 3,000

Program Level 26,994 45,000 30,000 -15,000

Full-Time Equivalents (FTEs) 218 218 218 0

Timber Sales Pipeline Restoration

New Budget Authority 5,151 6,000 6,000 0

Program Level 6,115 14,000 10,000 -4,000

Full-Time Equivalents (FTEs) 32 32 32 0

Forest Botanical Products

New Budget Authority 1,570 1,000 1,000 0

Program Level 1,602 1,602 1,602 0

Full-Time Equivalents (FTEs) 18 18 18 0

Stewardship Contracting

New Budget Authority 15,746 14,000 14,000 0

Program Level 12,511 13,000 13,000 0

Full-Time Equivalents (FTEs) 0 0 0 0

Recreation Fees, Forest Service

New Budget Authority 86,303 68,795 69,795 1,000

Program Level 70,408 70,408 70,408 0

Full-Time Equivalents (FTEs) 566 566 566 0

Timber Purchaser Election Road Construction

New Budget Authority 0 2,000 2,000 0

Program Level 532 532 532 0

Full-Time Equivalents (FTEs) 0 0 0 0

Operation and Maintenance of Forest Service Quarters

New Budget Authority 9,225 9,000 10,000 1,000

Program Level 5,127 5,127 5,127 0

Full-Time Equivalents (FTEs) 29 29 29 0

Roads and Trails for States

New Budget Authority 0 16,000 16,000 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 162

 

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

President's 

Budget

Program 

Changes

Land Between the Lakes Management

New Budget Authority 4,655 5,000 5,000 0

Program Level 4,254 4,254 4,254 0

Full-Time Equivalents (FTEs) 11 11 11 0

Midewin National Tallgrass Prairie Rental Fee

New Budget Authority 755 1,000 1,000 0

Program Level 760 760 760 0

Full-Time Equivalents (FTEs) 0 0 0 0

Midewin National Tallgrass Prairie Restoration

New Budget Authority 0 0 0 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Quinault Special Management Area

New Budget Authority 0 0 0 0

Program Level 2 2 2 0

Full-Time Equivalents (FTEs) 0 0 0 0

Valles Caldera

New Budget Authority 0 0 0 0

Program Level 11 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Restoration of Forest Lands & Improvements

New Budget Authority 10,607 20,000 11,000 -9,000

Program Level 67,275 67,275 67,275 0

Full-Time Equivalents (FTEs) 154 154 154 0

Commercial Filming and Still Photography Land Use Fee 

Retention

New Budget Authority 672 671 671 0

Program Level 517 517 517 0

Full-Time Equivalents (FTEs) 6 6 6 0

Organizational Camps Programs

New Budget Authority 683 682 682 0

Program Level 1,000 1,000 1,000 0

Full-Time Equivalents (FTEs) 6 6 6 0

Cost Recovery (Administration of Rights-of-Way)

New Budget Authority 8,386 767 767 0

Program Level 5,122 5,122 5,122 0

Full-Time Equivalents (FTEs) 41 41 41 0

Licensee Program Smokey Bear

New Budget Authority 99 98 98 0

Program Level 61 61 61 0

Full-Time Equivalents (FTEs) 0 0 0 0

Licensee Program Woodsy Owl

New Budget Authority 7 7 7 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 163

 

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

President's 

Budget

Program 

Changes

Forest Service Go Green Program (Conservation) 

New Budget Authority 34 33 33 0

Program Level 19 19 19 0

Full-Time Equivalents (FTEs) 0 0 0 0

Conveyance of Administrative Sites 

New Budget Authority 16,901 8,000 1,000 -7,000

Program Level 11,308 7,500 7,500 0

Full-Time Equivalents (FTEs) 3 3 3 0

Site-Specific Lands Acts

New Budget Authority 289 1,000 1,000 0

Program Level 376 500 500 0

Full-Time Equivalents (FTEs) 1 1 1 0

Payment to States

New Budget Authority 362,391 77,150 77,150 0

Program Level 292,105 91,573 91,573 0

Full-Time Equivalents (FTEs) 42 42 42 0

Permanent Funds New Budget Authority $567,087 $266,203 $255,203 -11,000

Permanent Funds Program Level $517,900 $348,252 $325,252 -23,000

Permanent Funds Full Time Equivalents (FTEs) 1,194 1,194 1,194 0
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 164

Permanent Appropriations

Brush Disposal

Budget Line Item Brush Disposal

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Brush Disposal

New Budget Authority $7,695 $8,000 $8,000 0

Program Level 11,801 20,000 16,000 0

Full-Time Equivalents (FTEs) 67 67 67 0

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, when left untreated, can increase the risk of fire, 

impair reforestation, and contribute to the buildup of insect populations. Logging slash can be mechanically treated 

by scattering, chipping, or crushing it down with logging equipment and allowed to decay. The treatment selected 

depends upon the amount of debris generated, as well as the relative fire hazard created. Slash can also be subjected 

to broadcast burning or collected into piles and burned during non-hazardous weather conditions.

Timber sale operators can perform the required work, or they can request that the agency complete this work by 

depositing funds to cover these costs. Brush Disposal funding comes from deposits required of timber purchasers if 

they select the second option, and it is used only on timber sale areas.

Authorities

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.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 165

Hardwood Technology Transfer & Applied Research

Budget Line Item Hardwood Technology Transfer and Applied Research 

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Hardwood Technology Transfer and Applied Research 

New Budget Authority 0 0 0 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

The Hardwood Technology Transfer and Applied Research fund allows for funds to be collected from leasing the 

Forest Service Wood Education and Resource Center’s wood shop and rough mill under a special use permit. The 

fund is used to pay for utilities, salaries, repairs and maintenance expenses. While the majority of the funds are 

generated from lessee rent, a portion of the funds may be derived from machine/timeshare rentals for start-up wood 

businesses and workshop fees.

Authorities

P.L. 106–113, div. B, §1000(a)(3) [Title III, §332], Nov. 29, 1999, 113 Stat. 1535, 1501A–197. Title 16 –

Conservation; Chapter 36 - Forest and Rangeland Renewable Resources Planning, Subchapter II – Research; Sec. 

1650 - Hardwood Technology Transfer and Applied Research. This act provides authority for the Wood Education 

and Resource Center (WERC) to conduct technology transfer and development, training, dissemination of 

information, and applied research in the management, processing, and utilization of the hardwood forest resource. 

The Act authorizes the generation of revenue and funds to be deposited into a special fund in the U.S. Treasury, 

known as the Hardwood Technology Transfer and Applied Research fund, which shall be available until expended, 

without further appropriation, in furtherance of the purposes stated in the Act including upkeep, management, and 

operation of the WERC, and the payment of salaries and expenses.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 166

Timber Salvage Sales

Budget Line Item Timber Salvage Sales

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Timber Salvage Sales

New Budget Authority $35,919 $26,000 $29,000 $3,000

Program Level 26,994 45,000 30,000 0

Full-Time Equivalents (FTEs) 218 218 218 0

Program Overview

Salvage sales permit the timely removal of fire or insect damaged and diseased trees to aid in maintaining healthy 

and resilient forest stands and ensuring community safety. The Timber Salvage Sale program collects revenues from 

the sale of timber from dead and dying trees to prepare and administer future salvage timber sales, including the 

provision of engineering support. These revenues are deposited into the Timber 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 valuable tool to reduce the potential for catastrophic wildland fires and 

other hazards associated with dead or dying trees. Timely salvage sales also help maximize the recovery of timber 

product value that would otherwise be lost. Through the collection of Knutson-Vandenberg Act funds, timber 

salvage sales can also provide for restoration of an affected area.

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 salvage timber. Funds are available until expended.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 167

Timber Sale Pipeline Restoration

Budget Line Item Timber Sales Pipeline Restoration 

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Timber Sales Pipeline Restoration 

New Budget Authority $5,151 $6,000 $6,000 0

Program Level 6,115 14,000 10,000 0

Full-Time Equivalents (FTEs) 32 32 32 0

Program Overview

The Timber Sales Pipeline Restoration fund contributes to many 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, the fund helps to address health and safety issues in recreation facilities and on system trails, benefiting the 

recreating public by addressing maintenance issues that may cause harm or otherwise detract from the outdoor 

experience. These activities are aligned with the agency’s integrated watershed improvement goals, and ensure 

forest and grasslands are conserved, restored, and made more resilient.

The following programs are included in the fund:

Timber Sale Pipeline Sale Preparation - Seventy-five percent of the Timber Sales Pipeline Restoration 

funds are used for the preparation of future non-salvage timber sales to restore the timber sales pipeline 

volume. This activity provides for the National Environmental Policy Act analysis to meet long-term forest 

health and desired condition objectives, determination of the volume and value of the trees to be removed, 

and timber sale layout and design necessary for future timber sales. Expenditures may also include the 

necessary planning and design for the associated timber roads.

Recreation Backlog - Twenty-five percent of the Timber Sales Pipeline Restoration 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.

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 these funds are also deposited into this fund and are available for preparation 

of additional timber sales and recreation backlog projects.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 168

Forest Botanical Products

Budget Line Item Forest Botanical Products

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Forest Botanical Products

New Budget Authority $1,570 $1,000 $1,000 0

Program Level 1,602 1,602 1,602 0

Full-Time Equivalents (FTEs) 18 18 18 0

Program Overview

This authority provides a mechanism for charging and collecting fees from persons who harvest forest botanical 

products. The term “forest botanical products” refers to any naturally occurring mushrooms, fungi, flowers, seeds, 

roots, bark, leaves, and other vegetation (or portion thereof) that grow on National Forest System lands. Fees 

collected are available to cover the costs associated with granting, modifying, or administering the permits 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. The objectives of this program are to maintain, enhance, or restore forest ecosystems to 

desired conditions, and 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.

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, 1501A-199, as amended by P.L. 

108-108,[title III, Sec. 335], Nov. 10, 2003, 117 Stat. 1312, and P.L. 111-88, [title IV, Sec. 420], Oct. 30, 2009, 123 

Stat. 2960). This Act authorizes the Secretary of Agriculture to charge and collect fees from persons who harvest 

forest botanical products to cover 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 pilot program. Funds collected are 

deposited in a special fund in the Treasury. 

Extension of Forest Botanical Products Authorities; Consolidated Appropriations Act, 2014 (P.L. 113-76). This act 

extends until September 30, 2019, the original authorization enacted through Section 339(h)(1) of the Department of 

the Interior and Related Agencies Appropriations Act, 2000 (enacted into law by section 1000(a)(3) of Public Law 

106–113; 16 U.S.C. 528 note). This authority will expire on September 30, 2019, unless it is reauthorized by 

Congress. However, all funds collected on or prior to September 30, 2019, will remain available for expenditure 

through September 30, 2020.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 169

Stewardship Contracting

Budget Line Item Stewardship Contracting 

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Stewardship Contracting 

New Budget Authority $15,746 $14,000 $14,000 0

Program Level 12,511 13,000 13,000 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

Stewardship Contracting permits the Forest Service to apply the value of timber or other forest products from 

stewardship contracts as an offset against the costs to accomplish additional 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: 

 road and trail maintenance or decommissioning to restore or maintain water quality;

 work to improve soil productivity, or other resource values;

 prescribed fires to improve the composition, structure, condition, and health of forest stands or to improve 

wildlife habitat;

 removal of vegetation or other activities to promote healthy forests, reduce fire hazards, or achieve other 

land management objectives;

 restoration and maintenance of watersheds;

 restoration and maintenance of wildlife and fish habitat; and

 control of noxious and invasive weeds, and re-establishment of native plant species.

Authorities

Department of the Interior and Related Appropriations Act, 1999 (16 U.S.C. 2104 note) (P.L.105-277, div. A, Sec. 

101(e), [title III, Sec. 347], Oct. 21, 1998, Stat. 2681-231, amended by the 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 of P.L. 

108-7 supersedes the original authority granted to the Forest Service in section 347 of P.L. 105-277. The 

stewardship contracting authority authorizes the Forest Service, via agreement or contract, to enter into stewardship 

projects to perform services to achieve land management goals and to meet local and rural community needs. This 

authority was made permanent, pursuant to P.L. 113-79, the Agricultural Act of 2014.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 170

Recreation Fees, Forest Service

Budget Line Item Recreation Fees, Forest Service

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Recreation Fees, Forest Service

New Budget Authority $86,303 $68,795 $69,795 $1,000

Program Level 70,408 70,408 70,408 0

Full-Time Equivalents (FTEs) 566 566 566 0

Program Overview

When recreation fees are collected by the Forest Service, 80 to 95 percent of the fees collected are deposited in the 

Recreation Fees, Forest Service fund, and are spent on maintaining and improving the area, site, or projects that 

directly relate to visitor enjoyment, access, and health and safety. Work activities include: annual operation and 

maintenance, interpretation, signage, wildlife habitat restoration, resource preservation, and law enforcement. The 

agency executes a large amount of work in this program through contracts.

There are four programs within the Recreation Fees, Forest Service fund:

Recreation Fees, Forest Service Site Specific - We collect approximately $50 million annually to maintain and 

improve facilities and services for which the fees are collected. Five percent goes to the regional offices to support 

strategic program oversight, financial management, training, and grants to forests for improvements/special projects 

on the ground.

Recreation Fees, Forest Service Agency Specific - The Forest Service is the contracting agency for the National 

Recreation Reservation Service, part of Recreation.gov, an e-government initiative. The $120 million interagency 

funded contract, supports reservations for all recreation facilities on public lands that allow reservations. 

Recreation Fees, Forest Service Grey Towers National Historic Site Fees - Recreation fees are used for annual 

operations and maintenance of the historic mansion and 102 acre landscape; interpretive and education programs 

and projects that perpetuate the legacy of Gifford Pinchot for general public and youth; public programs that foster 

stewardship of natural resources; safety of the visitor and security of the resource; and support for the conference 

facility that provides conservation leadership development programs and enhances the dialogues taking place within 

the natural resource community.

Shasta-Trinity Marina Fees - Fees received from the marina project provide funding needed in the Shasta-Trinity 

National Recreation Area to meet critical health and safety standards; address portions of the maintenance backlog;

provide for many noteworthy, innovative projects including high quality interpretive and environmental education 

programs; installation and maintenance of over 300 underwater obstacle markers and 100 safety-related floating 

directional signs; establishment and maintenance of the National Recreation Area Boating Safety Program;

implementation and administration of the program’s Marina Standards; maintaining a floating toilet program; and 

the construction of accessible facilities to provide greater access for persons with disabilities. The goal of these 

projects is to meet the National Recreation Area’s intent, which is to showcase recreation opportunities in the 

agency.

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 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 
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 171

opportunities, visitor experiences, and related habitat. Funds are available until expended. The act directs the 

creation of Recreation Resource Advisory Committees to allow for public involvement in recreation fee programs. 

This authority was originally set to expire on December 8, 2014, but was extended through December 8, 2015, 

pursuant to P.L. 113-46, Continuing Appropriations Act, 2014, through December 11, 2015, pursuant to P.L. 113-

164, Continuing Appropriations Act, 2015, through September 30, 2016, pursuant to P.L. 113-483, Consolidated 

and Further Continuing Appropriations Act, 2015, through September 30, 2017, pursuant to P.L. 114-53, Continuing 

Appropriations Act, 2016, and through September 30, 2018, pursuant to P.L. 114-223.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 172

Timber Purchasing Election Road Construction

Budget Line Item Timber Purchaser Election Road Construction 

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Timber Purchaser Election Road Construction 

New Budget Authority 0 $2,000 $2,000 0

Program Level $532 532 532 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

Timber Purchaser Election Road Construction - The Timber Purchaser Election Road Construction program 

supports the construction and reconstruction of any permanent road or bridge as required under the terms and 

conditions of a timber sale contract. 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 area to a 

standard necessary to harvest and remove timber and other forest products. The agency then uses the funds to 

contract for the required road work and administer the contract. This program benefits small timber contractors who 

might otherwise be unable to bid on Forest Service timber sales, as well as provides for appropriate road 

improvements preventing soil degradation, stream sedimentation, or other damages.

Purchaser Election Vegetative Treatment - The Purchaser Election Vegetative Treatment funds support the 

following activities to improve forest health: vegetative treatments in timber stands at high risk of fire due to insect, 

disease, or drought; road work in support of vegetative treatments to support forest health objectives; and 

maintenance of infrastructure for the processing of woody fiber in regions where it is critical to sustaining local 

economies and fulfilling forest health objectives.

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 U.S.C. 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 construct or reconstruct 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). The Forest Service shall allocate to the regions of the Forest Service, 

$15 million from the current balance in the ‘‘timber roads purchaser election fund’, to remain available until 

expended.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 173

Operation & Management of Forest Service Quarters

Budget Line Item Operation and Maintenance of Forest Service Quarters

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Operation and Maintenance of Forest Service Quarters

New Budget Authority $9,225 $9,000 $10,000 $1,000

Program Level 5,127 5,127 5,127 0

Full-Time Equivalents (FTEs) 29 29 29 0

Program Overview

Forest Service Quarters Operation 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 are deposited in a special Treasury fund and remain available for obligation for operation and maintenance 

of quarters until expended.

Authorities

Forest Service Quarters Operation 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 are deposited in a special Treasury fund and remain available for obligation for operation and maintenance 

of quarters until expended.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 174

Roads & Trails for States

Budget Line Item Roads and Trails for States

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Roads and Trails for States

New Budget Authority 0 $16,000 $16,000 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

Under this fund, 10 percent of all National Forest Fund receipts, which is inclusive of both fees and other types of 

revenue, 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 National Forest System (NFS) lands. Funds are directed towards correcting 

road and trail deficiencies that adversely affect ecosystems.

Beginning in FY 1999 and continuing in subsequent appropriation acts, the authority was expanded to allow the use 

of funds for the purpose of improving forest health conditions and repairing or reconstructing 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. Work previously funded under this program has been funded through the Legacy Roads and 

Trails budget line item.

The last fiscal year that the Forest Service was authorized to obligate new collections from the Roads and Trails 

Fund was in FY 2007.

Authorities

The Act of March 4, 1913, as amended (16 U.S.C. 501). This act authorizes 10 percent of all National Forest Fund 

receipts received by 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.

Consolidated Appropriations Act, 2008 (P.L. 110–161, div F, title III, Dec. 26, 2007, 121 Stat. 2129). This act 

directed “That funds becoming available in FY 2008 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.”

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 FY 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.”

Consolidated Appropriations Act, 2012 (P.L. 112-74). This act directed “That funds becoming available in FY 2012 

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.”

Consolidated Appropriations Act, 2014 (P.L. 113-76). This act directed “That funds becoming available in FY 2014 

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.”
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 175

Land Between the Lakes Management

Budget Line Item Land Between the Lakes Management

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Land Between the Lakes Management

New Budget Authority $4,655 $5,000 $5,000 0

Program Level 4,254 4,254 4,254 0

Full-Time Equivalents (FTEs) 11 11 11 0

Program Overview

The Land Between the Lakes (LBL) National Recreation Area provides public recreational opportunities; conserves 

fish and wildlife and their habitat; provides for a diversity of plants and animals; and offers opportunities for 

hunting, fishing, and environmental education. LBL hosts an average of 1.6 million visits annually from people all 

over the Nation and more than 30 foreign countries. LBL continues to demonstrate success with its camping 

reservation system, which allows visitors to register for camp sites before arrival.

Section 524 of the Land Between the Lakes Protection Act established a special fund known as the LBL 

Management fund. All amounts received from charges, user fees, and natural resource use, including timber and 

agricultural receipts, are deposited into the fund. Funds are available for management of LBL, including payment of 

salaries and expenses.

Authority

Land Between the Lakes Protection Act of 1998 (16 U.S.C. 460lll-24) (P.L. 105-277, div. A, Sec. 101(e) [title V, 

Sec. 524], Oct. 21, 1998, 112 Stat. 2681-315). This act establishes the LBL Management fund. In accordance with 

Title V of the Act, responsibility for the LBL National Recreation Area in Kentucky and Tennessee transferred from 

the Tennessee Valley Authority to the Secretary of Agriculture.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 176

Midewin National Tallgrass Prairie Rental Fees

Budget Line Item Midewin National Tallgrass Prairie Rental Fees 

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Midewin National Tallgrass Prairie Rental Fees 

New Budget Authority $755 $1,000 $1,000 0

Program Level 760 760 760 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

The Illinois Land Conservation Act of 1995 established the Midewin National Tallgrass Prairie (MNTP) Rental Fees 

to be managed as part of the National Forest System. The act authorized the Secretary of Agriculture to issue 

agricultural special use authorizations and 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 ecosystem restoration, prairie improvements, and 

administrative activities directly related to those activities. These funds provide for maintenance of native plant 

communities and grassland bird habitat at the MNTP. The ability to collect funds from grazing and agricultural uses 

provides an essential financial resource to MNTP managers to continue to restore ecosystems and habitats in order 

to enhance biodiversity; promote scientific, environmental, and educational research; and develop best practices for 

land management.

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 MNTP.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 177

Midewin National Tallgrass Prairie Restoration

Budget Line Item Midewin National Tallgrass Prairie Restoration 

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Midewin National Tallgrass Prairie Restoration 

New Budget Authority 0 0 0 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

The Illinois Land Conservation Act of 1995 established the Midewin National Tallgrass Prairie (MNTP) to be 

managed as part of the National Forest System. There are two separate funds: the agricultural rental fund that funds 

prairie restoration, and the salvage fund that may be used for all other activities. Receipts from grazing fees, 

agricultural leases for row crops, 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.

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 MNTP.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 178

Quinault Special Management Area Fund

Budget Line Item Quinault Special Management Area 

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program

Changes

Permanent Funds

Quinault Special Management Area 

New Budget Authority 0 0 0 0

Program Level $2 $2 $2 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

This program and budget line item for the Quinault Special Management Area (QSMA) is unique to the Forest 

Service. The QSMA is over 5,400 acres, as prescribed by law, which the Olympic National Forest manages for the 

Quinault Indian Nation. Specifically, the lands are defined under Section 2 of the aforementioned act. All receipts 

from use of this land, including timber sales, firewood, botanicals, special use permits, and minerals, are divided 

with 45 percent going to the State of Washington, 45 percent to the Quinault Tribe, and 10 percent towards 

management of those lands by the Olympic National Forest. Quarterly, the Olympic National Forest processes the 

receipts and sends a letter to the Bureau of Indian Affairs and the Tribal Chair, documenting the receipts that will be 

transferred to Bureau for disbursement to the Tribe.

Authorities

The Act of November 8, 1988 (P.L 100-638) (102 Stat. 3327). This act established the Quinault Special 

Management Area from part of the Olympic National Forest, and it 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.

The act authorizes 10 percent of the gross proceeds from the sale of forest products on the QSMA are transferred to 

this account and are available for administration of future timber sales. The act also provides for the distribution of 

gross receipts from a special management area to compensate the Quinault Indian Tribe and the State of Washington 

for land that the Forest Service gave back to the Tribe. The distribution must be used for roads and schools.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 179

Restoration of Forest Lands & Improvements

Budget Line Item Restoration of Forest Lands and Improvements

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Restoration of Forest Lands and Improvements

New Budget Authority $10,607 $20,000 $11,000 -$9,000

Program Level 67,275 67,275 67,275 0

Full-Time Equivalents (FTEs) 154 154 154 0

Program Overview

This authority protects the interests of the Forest Service by allowing the agency to address 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, allowing 

the Forest Service to complete the needed restoration and rehabilitation work.

This authority also protects the interests of the American public from present or potential damage to National Forest 

System lands or improvements due to the actions of another party. This authority provides the Forest Service with 

the ability to use funds from a judgment, compromise, or claim settlement to address those damages.

Based on a Comptroller General's Decision (67 Comp. Gen. 276), collections may be used to reimburse the Forest 

Service for any restoration costs paid from Forest Service appropriations before the collections were received.

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 monies from: (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.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 180

Commercial Filming & Still Photography Land Use Fee Retention

Budget Line Item Commercial Filming and Still Photography Land Use Fee 

Retention

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Commercial Filming and Still Photography Land Use Fee 

Retention

New Budget Authority $672 $671 $671 0

Program Level 517 517 517 0

Full-Time Equivalents (FTEs) 6 6 6 0

Program Overview

Fees retained by the Forest Service in this fund are used to manage and respond to film/photo use requests in an 

expedited manner. For example, forest units use these funds to assess popular film/photo locations in advance of 

requests and to develop and post information on film/photo procedures specific to the unit. Regional and national 

units use these funds to provide management oversight, develop policy, and coordinate inter-regional or inter-forest 

film/photo requests prior to accepting a proposal as a formal application.

Authorities

The Act of May 26, 2000 (16 U.S.C. 460l-6d) (P. L. 106-206). This act authorizes retention of fees collected for 

commercial filming and photography land use authorizations and obligation of the monies for maintenance of the 

filming site. Land use fees are based on a schedule to use and occupy National Forest System land for filming/photo 

activities. This fee is separate from the cost recovery fee to process applications and to monitor the authorization for 

compliance with the commercial filming permit. 
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 181

Organizational Camps Program

Budget Line Item Organizational Camps Program

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Organizational Camps Program

New Budget Authority $683 $682 $682 0

Program Level 1,000 1,000 1,000 0

Full-Time Equivalents (FTEs) 6 6 6 0

Program Overview

Organizational camp fees are based on a percentage of the agricultural land value, adjusted downward for services 

provided to disabled individuals and 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.

The Forest Service administers approximately 300 permits for organizational camps. Work activities include 

performing oversight, inspection, and monitoring of existing authorizations to ensure compliance with the terms and 

conditions of the authorization.

Organizational camps have a three-part fee system:

 Land Use Fees – Fees are based on a percentage of the agricultural land value, adjusted downward for 

services provided to disabled individuals and at-risk youth. The land use fee may be offset by work 

performed pursuant to Section 3 of the Federal Timber Contract Payment Modification Act (16 U.S.C. 

539f).

 Facility Use Fees – If an organizational camp utilizes a federally-owned facility, a fee is assessed based on 

five percent of the value of the government owned improvements.

 Fees Based on Other Revenue – If permit holders earn revenue from activities other than providing youth 

services, a fee is assessed based on five percent of revenue.

Authorities

National Forest Organizational Camp Fee Improvement Act of 2003 (16 U.S.C. 6231 et seq.) (P.L. 108-7). This act 

defines an organizational camp as a public or semipublic camp developed by a nonprofit or government entity to 

introduce young people or people with disabilities to activities they might not otherwise experience and to educate 

them on natural resource issues. The act establishes a land use fee system for organizational camps located on NFS 

lands and authorizes the Secretary to retain and spend these fees without further appropriation. The act also exempts 

certain ministerial actions from the provisions of the National Environmental Policy Act.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 182

Cost Recovery (Land Uses)

Budget Line Item Cost Recovery (Land Uses)

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Cost Recovery (Land Uses)

New Budget Authority $8,386 $767 $767 0

Program Level 5,122 5,122 5,122 0

Full-Time Equivalents (FTEs) 41 41 41 0

Program Overview

Programs included in this fund are:

Cost Recovery Lands Major Projects - All recreation and non-recreation (land) uses that require more than 50 hours 

of agency time to process or monitor. Uses involving construction/reconstruction are deemed to be Major Categories 

for which the agency collects all appropriate administrative costs.

Cost Recovery Lands Minor Projects - Excluding recreation uses, all non-recreation (land) uses not subject to 

exemption or waiver that require 50 hours or less of agency time to process or monitor are deemed Minor 

Categories. These categories use a flat fee schedule established in four different tiers, subject to annual indexing.

Each year, the Forest Service processes between 6,000 and 9,000 applications for the use and occupancy of National 

Forest System (NFS) lands, and administers more than 80,000 authorizations for a wide variety of non-occupancy 

purposes, including energy-related uses, broadband and communication facilities, and campground management. 

Processing and authorizing these uses is an important component of facilitating the development and transmission of 

affordable and reliable energy and communication services, supporting national security, supporting economic 

development, and promoting the public health and safety of populations within or in proximity to national forests 

and grasslands throughout the Nation. 

Work activities include:

 Evaluating applications to use Federal land for other government use; commercial, and private requests to 

assure compliance with applicable laws, regulations, land use plans; and the technical and financial 

capability of applicants to conduct use on NFS land.

 Conducting appropriate environmental, social, and economic analyses on requests to use NFS land pursuant 

to the National Environmental Policy Act.

 Developing special use authorizations with appropriate terms and conditions that ensure protection of 

public health and safety and resource protection measures.

 Performing oversight and inspection of certain authorization activities associated with 

construction/reconstruction activities.

All determinations are subject to dispute, allowing the applicant or holder to question the validity of the estimated 

cost recovery fee in the initial determination. Disputes must provide written rationale and evidence as to why the 

estimated fee is in error, and suggest alternative fee estimations based in fact. Waivers of cost recovery fees are 

provided for local, State, or Federal governmental applicants and for recreation use authorizations taking 50 hours or 

less to process.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 183

Authorities

Special Use Application and Permit Monitoring Fees (Recovery of Costs). 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), P.L. 110-161 

Consolidated Appropriations Act, 2008 and P.L. 113-6 Consolidated and Further Continuing Appropriations Act, 

2013. This act provides authority through September 30, 2013, 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.

Forest Service Administration of Rights-of-Way and Land uses; Consolidated Appropriations Act, 2014 (P.L. 113-

76). This act provides permanent authority to retain and spend fees as originally authorized under Section 331 of the 

Department of the Interior and Related Agencies Appropriations Act, 2000 (as enacted into law by section 

1000(a)(3) of Public Law 106–113; 16 U.S.C. 497 note).

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 and monitor 

applications for 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). 
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 184

Licensee Program Smokey Bear

Budget Line Item Licensee Program Smokey Bear

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Licensee Program Smokey Bear

New Budget Authority $99 $98 $98 0

Program Level 61 61 61 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

The Smokey Bear program supports national initiatives, programs, and products that help increase public awareness 

in regard to wildfire prevention. The licensee contractor manages the marketing and administration of the 

commercial license program, and receives 35 percent of the royalties collected for its services. The national wildfire 

prevention Branch Chief manages the licensing contract. Smokey Bear royalties also support the National Smokey 

Bear Award program and the national wildfire prevention public service campaign. The Chief of the Forest Service 

has discretionary authority to use money from royalties in special projects, such as Smokey Bear birthday 

celebrations, that support the Smokey Bear wildfire prevention message. 

Authorities

Fees for the use of the Smokey Bear character by private enterprises are collected under regulations formulated by 

the Secretary of Agriculture. They are available to further the nationwide forest fire prevention campaign (P.L. 82-

359, CH. 327, 16 U.S.C. 580 p-2), (18 U.S.C. 711), (P.L. 93-318). 
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 185

Licensee Program Woodsy Owl

Budget Line Item Licensee Program Woodsy Owl

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Licensee Program Woodsy Owl

New Budget Authority $7 $7 $7 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

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 the environment. 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. One of these activities includes the management of the licensing 

program. The licensing contractor receives 35 percent of the royalties reported. In addition, during FY 2017 a share 

of the licensing fund will be used to continue promoting Woodsy’s partnership with the Office of the Head Start.

This will cover the cost of materials and supplies that will be sent to Head Start classrooms upon request.

Authorities

Fees for using the Woodsy Owl character by private enterprises are collected under regulations formulated by the 

Secretary of Agriculture. They are available 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, 

488b-3, 488b-6) (18 U.S.C. 711a).
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 186

Forest Service Go-Green Program (Conservation)

Budget Line Item Forest Service Go Green Program (Conservation)

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Forest Service Go Green Program (Conservation)

New Budget Authority $34 $33 $33 0

Program Level 19 19 19 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

The Forest Service promoted the implementation of the “Go Green” program on the national forests and grasslands 

in FY 2009 to help meet the agency’s recycling and waste reduction goals. Go Green funds are collected not only 

from recycling simple items such as cans, but also from recycling abandoned vehicles and appliances which makes 

this funding essential for land management. This funding enables field units to also accomplish clean-up activities 

they otherwise might not be able to accomplish.

Since FY 2009, the implementation of the authority to collect revenue resulting from waste prevention and recycling 

programs has increased significantly. The funding level in this program depends on the proceeds collected. As 

information on Go Green is more widely shared, funding levels are expected to increase. Every dollar collected 

under this authority offsets funding from other programs.

In FY 2018, we anticipate our Go Green program will continue to grow given increasing awareness through our 

Sustainable Operations peer learning series.

Authorities

Treasury and General Government Appropriations Act, 2002, authorizes Federal agencies to receive and use 

revenue resulting from waste prevention and recycling programs. Such revenue shall be available until expended for 

the purpose of waste reduction, prevention, and recycling programs.

Accountable property is excluded from this program, which includes all capital leases and all owned personal 

property having an acquisition cost of $5,000 or more. Excess property, such as electronics and other personal 

property that is not considered accountable property, follows an initial screening by U.S. Department of Agriculture

agencies which determines if the property is eligible for donation, to be transferred to another government agency, 

or to be recycled. Other items excluded from the scope of this program are Forest Service and General Services 

Administration vehicles, which also have disposal/excess rules in place.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 187

Conveyance of Administrative Sites

Budget Line Item Conveyance of Administrative Sites

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Conveyance of Administrative Sites

New Budget Authority $16,901 $8,000 $1,000 -$7,000

Program Level 11,308 7,500 7,500 0

Full-Time Equivalents (FTEs) 3 3 3 0

Program Overview

It is currently a priority for Federal agencies to dispose of unneeded properties and make more efficient use of the 

Government’s real estate.

The Administrative Site Conveyances Program allows the agency to convey unneeded administrative sites and retain 

the proceeds for building maintenance, rehabilitation, and construction. The program provides for the realignment 

of the agency’s facility portfolio by providing an incentive for local managers to liquidate obsolete or underutilized 

assets and reinvest in assets that best support the agency’s mission. This authority provides the opportunity to 

efficiently address current and future needs, reduce annual lease costs, and reduce the deferred maintenance backlog. 

In addition to operational benefits, the program provides substantial economic and social benefits. These include 

providing local communities with an additional tax base and opportunities for redevelopment to align with 

community plans and economic stimulus strategies. 

The Forest Service currently owns approximately 16,500 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 functions for this program 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 meet the needs of 

changing mission critical functions.

The tables below show final project accomplishments for FY2016 (Table A) and proposed new conveyance projects 

for FY 2018 (Table C), as the Administration is including a legislative proposal to extend the Forest Service Facility 

Realignment and Enhancement Act (FSFREA) for 2018. As FSFREA is not currently authorized for 2017, this 

section does not include the customary table showing changes in land conveyance projects in the current fiscal year. 

Authorities

Forest Service Facility Realignment and Enhancement Act of 2005, (FSFREA), Title V of the Department of the 

Interior, Environment, and Related Agencies Appropriations Act, 2006 (P.L. 109-54). 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. This authority 

was subsequently extended through September 30, 2016. As of this writing there have been no further extensions.
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 188

Consolidated Appropriations Act, 2012 (P.L. 112-74, Title IV, Sec. 421). This Act amends Section 503(f) of the 

Forest Service Facility Realignment and Enhancement Act of 2005 (Title V of the Department of the Interior, 

Environment and Related Agencies Appropriations Act, 2006, P.L. 109-54; 16 U.S.C. 580d note), as amended by 

section 422(1) of Public Law 111-8 (123 Stat. 748), by extending authorization to September 30, 2016.

Revenues received from the sale of land or structures are deposited into the Sisk Act Fund and are available without 

further appropriation.

TABLE A

FY 2016 Final Accomplishments Land and Facility Conveyance Projects

(dollars in thousands)

Region

State

Congressional

District

Forest

Project Name

Year Initiated

*Sale Value

Acres Conveyed

*Deferred 

Maintenance 

Eliminated

Gross Square Feet 

Reduced

1 MT 1

BeaverheadDeerlodge Sheridan Work Center 2016 $210 1.09 $62 4,802

4 WY 1 Bridger-Teton Bridger-Teton SO 2008 9,100 10.0 1,234 36,621

4 UT 3

Uinta-WasatchCache Provo Warehouse Site 2014 210 0.18 59 3,100

6 OR 2 Umatilla Waid Street (Ukiah 

Residence) 2014 15 0.1 63 1,075

6 OR 4

Rogue River 

Siskiyou "L" Street 2010 319 3.3 376.8 25,054

8 VA 9 Jefferson Mullins Cemetery Tract J9013 *N/A 1 0.68 0 0

8 VA 9 Jefferson Williams Tract J-1497 *N/A 48 2.66 25 2,000

9 MO 8 Mark Twain Potosi Assistant Ranger 

Dwelling 2006 56 2.0 30 1,244

Total, Forest Service $9,959 20.01 $1,849.8 73,896

TABLE C

FY 2018 New Conveyance Projects

(dollars in thousands)

Region

State

Congressional. District.

Forest

Project Name

Gross Square Feet Reduced

Acres

Deferred Maintenance Reduction

Estimated Sale Value

Proceeds for Maintenance

Proceeds for new Construction

Proceeds for Bldg. Disposal

Planned Conveyance Completion 

Date

1 ID ID 1 IPNF Bartoo Island Cabin 1,483 2 $458 $600 $600 2020

1 ID ID 1 IPNF Peterson Point 

Lookout 0 3 0 10 10 2020

1 MT 1 Lolo Thompson Falls 

Admin 1 0 40 0 180 180 2020

1 MT 1 Lolo Thompson Falls 

Admin 2 0 40 0 180 180 2020

1 MT 1 Lolo Thompson Falls 

Admin 3 0 40 0 180 180 2020
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 189

Region

State

Congressional. District.

Forest

Project Name

Gross Square Feet Reduced

Acres

Deferred Maintenance Reduction

Estimated Sale Value

Proceeds for Maintenance

Proceeds for new Construction

Proceeds for Bldg. Disposal

Planned Conveyance Completion 

Date

1 MT 1 Lolo Thompson Falls 

Admin 4 0 40 0 180 180 2020

2 CO 3 Routt Yampa Ranger Station 

Alley N/A 0.2 N/A 10 10 0 02018

2 CO 3 San Juan Cole Ranch 10,568 38 not 

evaluated 500 500 2019

3 AZ 4 Prescott Bradshaw RD Office 14,176 0.6 132 3,500 3,500 2019

3 AZ 4 Prescott Chino Valley RD 

Office 5,493 10 75 3,000 3,000 2019

3 AZ 4 Prescott Groom Creek Work 

Center 2,774 7 243 350 300 2019

3 AZ 1

Coconin

o

Verde Land Parcels 0 22 440 350 2019

4 Utah 1 Ashley

Ashleyway Homes and 

NRA Warehouse 

Conveyance

5,324 1.8 77 345 345

2018

4 Utah 1 Ashley

Dutch John Dwelling 

#5071 (single family 

dwelling)

1,646 0.24 24.6 120 120

2018

4 Utah 1 Ashley

Dutch John Dwelling 

#5072 (single family 

dwelling)

1,164 0.25 37.9 100 100

2018

4 Utah 1 Ashley

Dutch John 

Administrative 

Building

8,288 1 64 350 350

2018

8 GA 14 ChattOconee

Whitfield Riverbend 

Road 0 13 215 215 6/30/2018

8 AR 4

OzarkSt. 

Francis

Jasper Ranger 

Dwelling 1,922 1 5 150 150

9/30/2019

8 AR 4

OzarkSt. 

Francis

Paris Residence 

#110016 1,509 1 10 125 125

9/30/2019

8 AR 4

OzarkSt. 

Francis

Paris Residence 

#110017 1,471 1 10 110 110

9/30/2019

8 VA 9 Jefferson Shelor Tract J-846 1,608 0.28 10 115 115 2019

8 VA 9 Jefferson Vicars Tract J-982 1,323 0.41 15 125 125 2019

8 VA 9

George 

Washing

ton

Deerfield Work Center 9,510 8.00 65 350 350

2020

8 AR Ouachita Ouachita Job Corp 

Center 20,000 15 150 800 400 400 2021

1

0

AK Tongass Thorn Bay Lot II 15,500 10 542 350 350 2019

1

0

AK Tongass Thorn Bay Sort Yard 0 30 0 250 250 2019

Total, All Forest Service 103,759 326 $1,919 $12,635 $1,985 $10,510 $0 
FY 2018 Budget Justification USDA Forest Service

Permanent Appropriations 190

Site-Specific Lands Act

Budget Line Item Site-Specific Lands Acts

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Permanent Funds

Site-Specific Lands Acts

New Budget Authority $289 $1,000 $1,000 0

Program Level 376 500 500 0

Full-Time Equivalents (FTEs) 1 1 1 0

Program Overview

This program enables the collection of receipts from the sale of National Forest System land pursuant to special acts 

passed by Congress. The proceeds are used for specific improvements to lands and facilities within the same 

national forest or State.

The legislated project may include work functions such as: notification, analysis, valuation, and realty case 

processing services; construction of new facilities; alteration of existing facilities to change function; and expansion 

of facilities to meet the needs of changing mission critical functions. Projects are identified annually through the 

legislative process. As a result, benefits and funds collected vary each year based on legislation.

Authorities

Sisk Act, as amended (16 U.S.C. 484a; P.L. 90-171). The Sisk Act is an exchange authority that allows certain 

parties to deposit cash, in lieu of land, to complete a land exchange. The funds are then utilized by the Secretary to 

acquire non-Federal properties. Subsequently, other authorities have specified that the Sisk Act account be utilized 

to hold other proceeds until expended, consistent with the legislation. Revenues received from the sale of land or 

structures are deposited into the Sisk Act Fund and are available without further appropriation for the purpose(s) 

specified in the statutes.
FY 2018 Budget Justification USDA Forest Service

Payment to States 191

Payment to States

Budget Line Item Payment to States

(dollars in thousands)

FY 2016

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

FY 2018 vs 

FY 2017

Payment to States Funds

National Forest Fund Payments to States Available, Title I & III

New Budget Authority $155,401 0 0 0

Program Level 100,049 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to States Act of 1908 

New Budget Authority 0 50,000 50,000 0

Program Level 0 50,000 50,000 0

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to States Supplemental

New Budget Authority 145,400 0 0 0

Program Level 145,400 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to Minnesota Counties

New Budget Authority 6,150 6,150 6,150 0

Program Level 5,732 6,150 6,150 0

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to Counties, Bankhead-Jones Farm Tenant Act

New Budget Authority 28,435 21,000 21,000 0

Program Level 26,501 21,000 21,000 0

Full-Time Equivalents (FTEs) 0 0 0 0

Secure Payments for States (SRS), Title II

New Budget Authority 26,812 0 0 0

Program Level 14,295 14,295 14,295 0

Full-Time Equivalents (FTEs) 42 42 42 0

Secure Payments for States/Repayment per DOT Reauthorization

New Budget Authority 193 0 0 0

Program Level 128 128 128 0

Full-Time Equivalents (FTEs) 0 0 0 0

Payment to State Funds New Budget Authority $362,391 $77,150 $77,150 $0

Payment Funds Program Level $292,105 $91,573 $91,573 $0

Payment to States Funds Full-Time Equivalent (FTEs) 42 42 42 0
FY 2018 Budget Justification USDA Forest Service

Payment to States 192

Program Overview

National Forest Fund Payments to States Available, Title I & III 

The National Forest Fund Payment to States Available is an account where all receipts that are projected to be used 

for Title I and Title III payments under Secure Rural Schools Payments for States (SRS) are deposited. These funds, 

combined with a Payments to States U.S. Treasury transfer, are the source of payments to States under the SRS Act.

The Secure Rural Schools and Community Self-Determination Act of 2000, as amended (16 U.S.C. 500) (SRS Act) 

directs that Title I funds be used to help fund county schools and roads. Title III may be used on county projects 

including activities under the Firewise Communities program, reimbursement for emergency services on national 

forests, and preparation of community wildfire protection plans. The National Forest Fund Payment to States 

Available is an account where all receipts that are projected to be used for Title I and Title III payments under the 

SRS Act are deposited. These receipts, combined with the Payments to States Supplemental, are the source of 

payments to states under the SRS Act, most recently reauthorized by P.L. 114-10 on April 16, 2015.

As of this writing, Congress has not reauthorized the SRS Act. Without Congressional reauthorization of the Secure 

Rural Schools and Community Self Determination Act (SRS Act), therefore, the Forest Service was required to 

revert to making payments to States under the 1908 Act, commonly called the 25 percent payments, for the 2017 

payment year. USDA Forest Service processed a payment to each State on or about March 7, 2017. Information 

about the 2017 payments can be found at https://www.fs.usda.gov/pts/ . 

Twenty-five Percent Payment

The term “twenty-five percent payment” means the payment to States required by the sixth paragraph under the 

heading of "FOREST SERVICE" in the Act of May 23, 1908. Twenty-five percent payments, authorized under the 

SRS Act, are annual payments to States on a 25 percent seven-year rolling average of revenues basis from the sale of 

goods and services provided by the national forests. The SRS Act directs that States shall use these payments for 

schools and/or roads projects. The SRS Act was amended on October 3, 2008, in P.L. 110-343, Division C, Title VI. 

P.L. 110-343 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).

Payments to States Supplemental

Under the Secure Rural Schools Act, the Forest Service first uses all forest receipts from the National Forest Fund 

receipt account to fund SRS Act payments. If those receipts are insufficient, a request is made to U.S. Treasury to 

transfer the additional amount required to fully fund SRS Act formula payments.

Counties that opted to not receive formula payments under the SRS Act, do receive with few exceptions 25 percent 

of all moneys collected from the national forests in which the counties are located. Counties that elected to receive 

their share of a State’s SRS Act formula payment, receive payments under a formula based on several factors, 

including acreage of Federal land, previous payments, and per capita personal income. 

Payments to Minnesota Counties

This authority derives from the Thye-Blatnick Act of June 22, 1948, as amended (16 U.S.C. 577g), Payment for 

Additional Lands Acquired in Northern Minnesota. This Act directed the Secretary of Agriculture 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 one 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 last completed in 2008.
FY 2018 Budget Justification USDA Forest Service

Payment to States 193

Payments to Counties, Bankhead-Jones Farm Tenant Act

This authority derives from title III of the Bankhead-Jones Farm Tenant Act of July 22, 1937, as amended (7 U.S.C. 

1012). This Act pertains primarily to national grasslands and land use projects. Annual payments are authorized to 

counties that contain Forest Service lands 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.

Secure Payments for States (SRS), Title II

The Secure Rural Schools and Community Self-Determination Act of 2000 (16 U.S.C. 500) originally authorized 

through FY 2006 as P.L. 106-393, provided choices to counties to either 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, or to receive payments under the Act of May 23, 1908. 

The Act was reauthorized through FY 2011 on October 3, 2008, in P.L. 110-343, Division C, Title VI. P.L. 112-141 

reauthorized the program through FY 2012 and P.L. 113-40 reauthorized the program again through FY 2013. There 

was then a two year reauthorization for FY 2014 through FY 2015 under section 524 of P.L. 114-10. The most

recent authorization, by P.L. 114-10, locks-in the elections made by counties to be the same as for the FY 2013 

payment that was made in FY 2014.

Secure Payments for States Failure to Elect and Return to Treasury Option

The SRS Act (16 U.S.C. sec. 7112) required an eligible county that received a share of the SRS formula payment 

greater than $100,000 to submit its election to allocate its share among titles of the SRS Act not later than September 

30 each year, prior to P.L. 114-10. Under the most recent reauthorization of the SRS Act, by P.L. 114-10 elections 

are locked in. Prior to P.L. 114-10, an eligible county that failed to make a timely election was considered to have 

elected to expend 80 percent of the funds in accordance with the provisions of the 1908 Act. The remaining funds 

become available to the Forest Service to carry out projects in the eligible county to further protection, restoration, 

and enhancement of fish and wildlife habitat, and other resource objectives consistent with the purposes of the SRS 

Act on Federal land and on non-Federal land where projects would benefit the resources on Federal land. In FY 

2016, failure to elect funds, per 16 U.S.C. 7112(d)(3)(B)(ii), totaled $192,900.01. A county may also opt to return its 

SRS Act formula allocation, in whole or part, to the U.S. Treasury per U.S.C. 7112(d)(1)(C)(ii). In FY 2016 a total 

of $125,405.05 was returned to the U.S. Treasury.
FY 2018 Budget Justification USDA Forest Service

Payment to States 194

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FY 2018 Budget Justification USDA Forest Service

Trust Funds 195

Trust Funds

Budget Line Item Trust Funds

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Trust Funds

Cooperative Work, Knutson-Vandenberg

New Budget Authority $210,171 $39,000 $40,000 $1,000

Program Level 58,154 75,000 71,000 4,000

Full-Time Equivalents (FTEs) 367 367 367 0

Cooperative Work, Other

New Budget Authority 84,139 30,000 30,000 0

Program Level 43,744 44,000 44,000 0

Full-Time Equivalents (FTEs) 216 216 216 0

Land Between the Lakes Trust Fund

New Budget Authority 92 90 90 0

Program Level 82 81 81 0

Full-Time Equivalents (FTEs) 0 0 0 0

Reforestation Trust Fund

New Budget Authority 30,000 30,000 30,000 0

Program Level 31,769 32,000 27,000 -5,000

Full-Time Equivalents (FTEs) 158 158 158 0

Trust Funds New Budget Authority $324,402 $99,090 $100,090 1,000

Trust Funds Program Level $133,749 $151,081 $142,081 -9000

Trust Funds Full-Time Equivalents (FTEs) 741 741 741 0
FY 2018 Budget Justification USDA Forest Service

Trust Funds 196

Cooperative Work - Knutson-Vandenberg

Appropriation Cooperative Work - Knutson-Vandenberg

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Trust Funds

Cooperative Work, Knutson-Vandenberg

New Budget Authority $210,171 $39,000 $40,000 $1,000

Program Level 58,154 75,000 71,000 4,000

Full-Time Equivalents (FTEs) 367 367 367 0

Program Overview

The following programs are included in this fund:

Knutson-Vandenberg (K-V) - This program uses funds derived from timber sale revenues to accomplish 

improvement work within the timber sale area. Planned resource project work is documented in the sale area 

improvement plans 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 for the improvement of other resource values, including wildlife, soil, watershed, range, and recreation. 

Knutson-Vandenberg Regional Work - The FY 2006 Interior 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 authority is used to accomplish watershed restoration; wildlife habitat improvement; 

control of insects, disease, and noxious weeds; community protection activities; and the maintenance of forest roads. 

The work can be performed through the use of contracts, forest product sales, and cooperative agreements. If forest 

product sales are used 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.

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, [Title IV, Sec. 412], Aug. 2, 2005, 119 Stat. 551). The act, known as the KnutsonVandenberg 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.” 
FY 2018 Budget Justification USDA Forest Service

Trust Funds 197

Cooperative Work - Other

Budget Line Item Cooperative Work, Other

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Trust Funds

Cooperative Work, Other

New Budget Authority $84,139 $30,000 $30,000 0

Program Level 43,744 44,000 44,000 0

Full-Time Equivalents (FTEs) 216 216 216 0

Program Overview

The Cooperative Work, Other fund is used to collect deposits received from partners and cooperators for protecting 

and improving resources of the National Forest System (NFS) 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 

NFS lands, and for other agency activities. 

Cooperative Work, Agreement Based – This is a direct project-to-customer relationship, typically involving 

long-term liability on the part of the Forest Service to perform work for the contributor. An example of this 

work are special use permits with collection provisions under the Granger-Thye fee offset where the Forest 

Service has a liability to perform work for the permit holder specially tied to the permit. These agreements 

should typically be accompanied by a collection agreement.

Cooperative Work, Non-Agreement Based – These deposits occur when the terms of the authorizing 

instrument, such as a permit or sale contract, allow for deposits from multiple contributors to be pooled and 

expended for the intended purpose. The majority of these pooled collections are not subject to refunds in 

accordance with the provisions of the respective authorizing instrument.

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. 

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 NFS 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, NFS 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.

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.
FY 2018 Budget Justification USDA Forest Service

Trust Funds 198

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.

The Act of October 10, 1978 (7 U.S.C. 2269). This act authorizes agencies within the USDA 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.
FY 2018 Budget Justification USDA Forest Service

Trust Funds 199

Land Between the Lakes Trust Fund

Budget Line Item Land Between the Lakes Trust Fund

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Trust Funds

Land Between the Lakes Trust Fund

New Budget Authority $92 $90 $90 0

Program Level 82 81 81 0

Full-Time Equivalents (FTEs) 0 0 0 0

Program Overview

The Land Between the Lakes Protection Act called for (LBL), an area in western Kentucky and Tennessee, to be 

managed as a unit of the National Forest System. Section 531 of the Act established a special interest-bearing fund 

known as the LBL trust fund, to be available for public education, grants, and internships related to recreation, 

conservation, and multiple-use land management as well as 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, the Tennessee Valley Authority 

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. This includes providing additional 

funding to further assist in the promotion and support of the successful school grant program for environmental 

education.

Authority

Land Between the Lakes Protection Act of 1998 (16 U.S.C. 460lll-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 LBL 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 2018 Budget Justification USDA Forest Service

Trust Funds 200

Reforestation Trust Fund

Budget Line Item Reforestation Trust Fund

 (dollars in thousands)

 

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

President's 

Budget

Program 

Changes

Trust Funds

Reforestation Trust Fund

New Budget Authority $30,000 $30,000 $30,000 0

Program Level 31,769 32,000 27,000 -$5,000

Full-Time Equivalents (FTEs) 158 158 158 0

Program Overview

A maximum of $30 million 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 for planting or seeding of the appropriate tree species, site preparation to encourage natural regeneration, 

and certification of acres naturally regenerated without the need of site preparation. In addition, as part of the 

reforestation activity, various treatments are applied to improve initial seedling survival rates. Benefits of 

reforestation include restoration of forest vegetation on areas impacted by wildfire, floods, and hurricanes; increased 

carbon sequestration capacity; establishment of resilient forest vegetation; and improved habitat diversity for many 

wildlife species. Timber stand improvement activities include release treatments through removal of competing 

vegetation; pre-commercial thinning to regulate stand density, composition and structure; pruning treatments that 

reduce ladder fuels, reduce the effects of pathogens (such as white pine blister rust) and improve future wood 

product quality; and fertilization treatments to maintain and improve soil productivity and enhance rapid stand 

development to improve carbon storage capacity. Benefits of timber stand 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, timber stand improvement generates woody biomass that is 

available to meet renewable energy needs.

Authorities

Reforestation, Recreational Boating Safety and Facilities Act of 1980, Title III, as amended (16 U.S.C. 1606a(d)) 

P.L. 96-451. This act established the Reforestation Trust fund.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 201

Special Exhibits

Biomass, Wood Products, and Wood Energy

Forest Service Funding for Biomass, Wood Products, Wood Energy, and

the Wood Education and Resource Center

(dollars in thousands)

Activity Budget Line Item FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Biomass Production

Forest Products $4,250 $5,000 $4,250

Bioenergy & Biobased Products 

Research Research and Development 11,924 11,757 10,165

Wood Education and Resource 

Center (WERC)

Forest Stewardship, Urban 

Forestry, Forest Health, State 

Fire Assistance and Hazardous 

Fuels***

960 960 0

Subtotal Biomass Production 17,134 17,717 14,415

Wood Innovations Program

Geographically Target Wood 

Utilization Hazardous Fuels 1,000 1,000 1,000

Wood Innovation Grants Hazardous Fuels 8,346** 8,450 8,450

Other Market Development (Wood 

Products/Wood Energy) Hazardous Fuels 654 550 5,550

Subtotal, Wood Innovation Program Hazardous Fuels 10,000 10,000 15,000

Total $27,134 $27,717 $29,415

*

This includes funding for the production of biomass from NFS lands and funding for wood supply assessments.

**Administered by Regions/Area with support from the Wood Education and Resource Center. 

***A mix of funds is provided to the Wood Education and Resource Center to address hardwood industry issues related to the 35-state eastern hardwood 

region and to develop markets for underutilized hardwoods and softwoods in the region. 

FY 2018

Forest Service’s emphasis on biomass, wood products, and wood energy encourages market development for woody 

biomass. The work planned for FY 2018 is primarily structured around the Forest Service Wood Innovations Program. 

The agency will continue to support and develop wood utilization technologies and practices that effectively integrate 

biomass production into forest management activities. The following describes the work to be accomplished.

Biomass Production

In FY 2018 the National Forest System will continue to provide material for biomass markets as a by-product of our 

restoration work. 

In FY 2016, the agency faced challenges such as decreased market demand for biomass in certain regions of the 

country. In particular, demand was down in California, which historically has been one of our top producing Regions. 

While market factors are subject to change, recent state legislation in California has the potential to increase demand 

for bioenergy. The National Forest System (NFS) will continue to work with State & Private Forestry, Forest Service 

Research and Development (R&D) and the Farm Service Agency Biomass Crop Assistance Program to grow markets 

and infrastructure for biomass production and utilization across the country.

Bioenergy and Biobased Products Research 

The agency will continue to provide more accurate national and regional feedstock availability projections; models to 

assist in bioenergy facility site selection; sustainable management systems, options, and practices for forest bioenergy 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 202

feedstocks; logistics and decision support tools to improve treatment, harvest, and transport efficiency; integrated 

models of land use patterns and bioenergy markets; and life cycle analysis and assessment tools for forest bioenergy 

and bioproducts supply chains.

The agency will continue the development of wood-based biofuels, chemicals, and products that substitute for 

petroleum-based materials, including developing biomass deconstruction science and technology, conversion 

technologies for wood-based liquid fuels, including drop-in fuels, and science and technology for manufacturing 

chemicals and other co-products from biomass-to-energy conversion.

Wood Innovations Program 

In 2014, the Forest Service established the Wood Innovations Program to strategically expand wood products and 

wood energy markets that support forest management and deliver economic and environmental benefits to 

communities. By providing technical assistance, funding, and high quality data, this work helps inform business 

decisions. For example, the Wood Innovations Program funds the nonprofit WoodWorks that provides free project 

assistance as well as education and resources related to the design of non-residential and multi-family wood buildings. 

Since the Forest Service started funding WoodWorks at the beginning of 2014, they have influenced and converted 

1,200 projects to wood that were originally designed in traditional building materials, accounting for over $783 million 

in incremental wood products sales. Additionally, the Forest Service and other USDA agencies collaborate with key 

wood energy sector partners and diverse stakeholders to provide funding and technical assistance under USDA’s Wood 

Energy initiative. The Wood Innovations Grant program is a critical component of this initiative. 

Much of this effort is funded through grants and cooperative agreements awarded annually through our Wood 

Innovations Grants to diverse organizations across the country, such as States, Tribes, businesses, local governments, 

and non-profits. The maximum for each Wood Innovation Grant is generally $250,000 and all grantees must match at 

least 50 percent of the Forest Service requested funds. This competitive funding opportunity will continue in 2018.

Since 2013, 22 States have established Statewide Wood Energy Teams through Forest Service cooperative agreements 

to expand wood energy markets. In total, our agency has invested roughly $5.2 million and States have contributed 

roughly $6.8 million to support these teams for up to three years. This funding has leveraged substantial private 

investment, created local jobs, supported forest health priorities, and improved local economies through conversion of 

existing and new facilities to wood energy. Six States have also entered into cooperative agreements with the Forest 

Service to establish Statewide Wood Utilization Teams designed to expand traditional and innovative wood products. 

These teams have been extremely effective in identifying successful opportunities in the highest priority areas of each 

State. They provide technical assistance and seed money for projects, and also get projects ready for competitive 

funding through Wood Innovations, Rural Development, or other funding opportunities. In 2018, the agency expects

continued enthusiasm by States and partners to advance wood energy and wood products markets. 

The agency continues to expand the use of wood in the commercial building sector. Engineered wood products, such as 

cross-laminated timber (CLT), for commercial high rise buildings are opening extensive new markets for the 

conversion of relatively low-value small dimensional lumber into higher-value structural materials. This new market 

has the potential to produce significant benefits related to energy conservation and the reduction of costs for hazardous 

fuels reduction, forest restoration, and other forest treatments. This promising market stores carbon in long-lived 

building materials, reduces the amount of energy required for building construction, and generates a higher monetary 

value for wood. The agency anticipate a dramatic increase in the expansion of CLT use in commercial building 

construction in the United States. 

Additional Wood Innovations activities:

 Wood Innovations Grants: Expand Wood Energy and Wood Products Markets - In 2017, the Forest Service 

will issue grants to expand wood energy and wood products markets in traditional and emerging sectors to 

support forest management needs on NFS and other forest lands. Preference will be given to projects that 

make use of wood generated from NFS and other forest lands with high wildfire risk or projects that support 

commercial building markets or other markets that use innovative wood products. The maximum for each 

award is generally $250,000 and all grantees must match at least 50 percent of the Forest Service requested 

funds.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 203

 Geographically Target Wood Utilization - This funding, in conjunction with geographically-focused 

hazardous fuels work, will support wood utilization to reduce treatment costs through technical assistance, 

grants, and cooperative agreements, if specific needs are identified.

Wood Education and Resource Center 

The Wood Education and Resource Center (WERC) was started in 1999 when legislation was enacted authorizing the 

Forest Service to assume operation of the former Robert C. Byrd Hardwood Technology Center (RCBHTC) in 

Princeton, West Virginia. Under Forest Service management, WERC focuses on primary and secondary wood 

processing, woody biomass utilization using multidisciplinary approaches, efficient utilization of urban tree removals, 

partnerships to solve forest products related issues, as well as the following activities: 

 maintaining and expanding a competitive hardwood industry that provides jobs and markets for local 

community needs;

 increasing communication, cooperation, and collaborative problem solving within the forest products industry;

 supporting woody biomass utilization for energy;

 advancing market development and utilization of trees affected by insects, diseases, and weather events, and

 supporting appropriate green building initiatives and carbon storage in wood products.

The WERC programs help maintain and improve wood industry productivity and competitiveness in a sustainable 

manner within the 35 States of the eastern hardwood region. Viable wood products markets enable sustainable forest 

management on private, State, and Federal lands. WERC staff includes a Biomass Coordinator position to provide 

leadership for woody biomass-to-energy efforts across the State & Private Forestry’s Northeastern Area. The WERC’s 

biomass coordination efforts have resulted in a partnership with several engineering consultants that provide 

preliminary assessments of energy system conversions. These are completed for schools, hospitals, office, and business 

facilities.

Past Performance

The Forest Service has a long history of success in encouraging the expansion of wood products and wood energy 

markets, but sees a more urgent need to support these goals. Selected accomplishments include the following:

 In FY 2016, Forest Service awarded over $8.3 million in Wood Innovation Grants to stimulate widespread use 

of wood residues for renewable energy, wood products, and innovative commercial building materials to 

support management of NFS lands and other lands with significant forest restoration needs, especially those 

with elevated hazardous fuels conditions. These Federal funds leveraged over $18 million in partner 

investments.

 The WERC plays a critical role in keeping forest-related businesses in business. In FY 2016, WERC was 

involved with 15 workshops or webinars primarily for industry, prepared or reviewed more than 30 woody 

biomass feasibility studies for facility owners, and administered the national Wood Innovations funding 

program.

 In FY 2016, the agency produced 2.13 million green tons of biomass from NFS lands for use in bio-energy 

production.

 In FY 2016, the Forest Service continued to help the Farm Services Agency implement the Biomass Crop 

Assistance Program, which provides eligible farmers, ranchers, and foresters with an incentive to harvest 

forest and agricultural residues and deliver them to qualified energy facilities. The program provided 

transportation subsidies to loggers and energy facilities for the removal and delivery of biomass for energy 

generation. 

 The delivery of these residues advanced an important component of the restoration activities occurring on 

NFS lands.

 In FY 2016, Forest Service R&D scientists produced more than 103 publications and presentations advancing 

science and technology in biomass production and management systems, biofuels and bioproducts, and 

decision support and policy analysis.

 Forest Service R&D scientists are exploring the potential of nano-products from wood. Possible uses of these 

renewable products could include high-end compostable electronics, paint-on solar panels, strong and 

lightweight materials for airplanes and cars, and hundreds of other uses. 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 204

 Forest Service R&D scientists are working to develop methods to design cross-laminated timber (CLT) 

buildings to six stories and beyond that will withstand earthquakes. 

 Forest Service R&D scientists cooperated with West Virginia University to enhance the competitiveness of 

the U.S. hardwood lumber industry by improving the accuracy of log internal defect detection and maximizing 

log value recovery.

 Forest Service R&D scientists analyzed timber salvaging in the Gulf State region after major hurricanes. Posthurricane analysis leads to a better understanding of storm salvaging operations and increased salvaging 

efficiency.

 In its ‘Waste-to-Wisdom’ initiative, Forest Service R&D scientists are collaborating with 15 regional partners 

to assess the environmental viability of converting wood waste (i.e., post-harvest residues) into viable 

bioenergy products using two near-woods bioconversion technologies, briquetting and torrefaction.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 205

California Tree Mortality 

Background

This exhibit is not required by Congressional direction but is included to increase awareness of the tree mortality issue, 

which, thus far, has affected California the most, but spreading to other States.

Overview

Since 2010, more than 102 million drought-stressed trees have died across 7.7 million acres of California forests. 

More than half of those died last year alone. The greatest tree mortality has been found in the Stanislaus, Sierra and 

Sequoia National Forests and counties of the Southern Sierras (Kern, Fresno, Madera, Mariposa, Tulare, and 

Tuolumne), where low elevation pines (ponderosa, sugar, and pinyon) seem hardest hit, although many other species 

are impacted. 

The Forest Service has made tree mortality response a top priority to address removal of hazard trees and reduce risk to 

communities. The agency is an active participant in the Governor’s Tree Mortality Task Force.

Agency Priorities 

The magnitude of the tree mortality requires the agency to prioritize treatments. In response, the Pacific Southwest 

Region developed a 3-phase strategy. Phase one uses a triage approach in which forests are removing dead and dying 

trees to help protect public and employee safety from falling trees and wildfire risk in high hazard areas near 

communities, in recreation sites, along roads, trails, and utility corridors. The second and third phase further address 

hazardous fuels conditions and incorporates restoration activities in the tree mortality areas. These last two phases are 

long-term, going out more than 10 years.

Agency Actions

1. Accomplishments as of January 30, 2017, on the Sequoia, Sierra, and Stanislaus National Forests

Cumulative MBF Felled 113,639

Cumulative Acres Treated 25,104

Acres in Progress 56,363

Cumulative Trees Felled 266,087

2. Hazard mitigation completed on values at risk:

 40 communities with Hazard Tree Mitigation 

 1,375 acres of Fuel Breaks

 81 miles of Powerlines

 139 Recreation Sites

 398 miles of Road

 46 miles of Trail

Weather and limited accessibility during the winter of 2016/2017 slowed some of the hazardous mitigation work. 

Historic and Current Funding

1. Fiscal Year 2016 – The agency redirected $43 million to remove dead and dying trees to help protect public 

and employee safety from falling trees and wildfire risk in high hazard areas near communities, in recreation 

sites, along roads, trails, and utility corridors. The redirection required the forests to put many ongoing green 

timber or other forest restoration work on hold. 

2. Fiscal Year 2017 – The agency will direct about $32 million to continue to address dead tree removal in and 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 206

around communities, recreation sites, along roads, trails, and other values at risk. This includes forest 

operating funds of more than $14 million and an additional $18 million prioritized from the agency for tree 

mortality work in California. 

3. Fiscal Year 2018 – There are currently another 95,000 NEPA-ready acres in the high-hazard areas on the 

Sequoia, Sierra, and Stanislaus National Forests that will be completed as additional funding is identified. In 

general, treatments cost from $1,000 to $2,000 an acre depending on proximity to infrastructure. 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 207

Chief’s Reserve Fund

Background

This exhibit is required by P.L. 109-54, House Report 109-80, page 151, Administrative Provisions, which directed:

The Committee also requests that future budget justification displays on this fund include a complete 

presentation of spending from the fund during the most recent complete fiscal year, with a brief explanation 

why the uses were indeed important, unanticipated, and appropriate.

Overview

The Chief’s Reserve Fund (CRF) is managed by 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.

FY 2018 Program

At the Chief’s discretion, funds from this reserve are available for unplanned and/or emergency circumstances. 

Requests are evaluated against criteria including the urgent nature of the event, relevance of proposed use to priorities, 

other funding source considerations, and 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 appropriated. 

Unused funds are distributed to the Regions, Stations, and Northeastern Area as carryover in the following year.

FY 2015 to FY 2018 Funding

 (dollars in thousands)

FY 2015

Actual

FY 2016

Actual

FY 2017

Estimates

FY 2018

Estimates

$6,318 $1,403 $6,318 $6,318

Past Performance

In FY 2016, the CRF allocation was reduced to increase availability of funding as a part of initial allocations, which 

included funding for national priorities identified by agency leadership. This strategy is consistent with the leadership 

commitment to identify priorities early and provide authority to support prompt obligation of balances. 

A reduced amount, $1.4 million, was held in the CRF to support unplanned projects and provide additional funding for 

others. Total program amounts assessed in FY 2016 are illustrated in the table below.

FY 2016 Program Amounts

(dollars in thousands)

FY 2016 Program Approved

Preparedness $478

Suppression 406

Pool 519

Total $1,403 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 208

Projects or initiatives funded by the Chief’s Reserve Fund in FY 2016 include:

Presidential Management Fellows Program ($40,000)

The Chief’s initiative to recruit and attract leaders for the future, the Presidential Management Fellow (PMF) program 

funded and authorized up to nine slots at the national level. Units selected by the PMF Advisory Board are reimbursed 

approximately 50 percent of the fellow’s salary and related costs, up to $40,000 per year beginning the first full fiscal 

year after the fellow is hired. An additional PMF was identified in 2016 bringing the number of slots authorized to 10. 

Office of the Assistant Secretary for Civil Rights (OASCR) Funding ($479,743)

As of January 2013, OASCR assumed all USDA Equal Employment Opportunity investigation responsibilities. 

Agencies receive a quarterly accounting report of their investigation cost expenditures and adjustments are made based 

on the actual number of complaints filed. Originally, the Forest Service supported salary for four FTEs; however, the 

methodologies changed in FY 2015 where all USDA agencies support the Employee Investigations Division Staff. As 

a result, the FY 2016 salary support costs to Forest Service increased by $479,743. The Chief Reserve Fund provided 

funding to support the OASCR increase.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 209

Cost Pool Totals (both Direct and Indirect)

Background

This exhibit is required by P.L. 107-63, 115 Stat. 452, as follows:

The Forest Service shall fund indirect expenses, that are expenses not directly related to specific programs or 

to the accomplishment of specific work on-the-ground, from any funds available to the Forest Service: 

Provided, that the Forest Service shall implement and adhere to the definitions of indirect expenditures 

established pursuant to Public Law 105–277 on a nationwide basis without flexibility for modification by any 

organizational level except the Washington Office, and when changed by the Washington Office, such 

changes in definition shall be reported in budget requests submitted by the Forest Service: Provided further, 

that the Forest Service shall provide in all future budget justifications, planned indirect expenditures in 

accordance with the definitions, summarized and displayed to the Regional, Station, Area, and detached unit 

office level. The justification shall display the estimated source and amount of indirect expenditures, by 

expanded budget line item, of funds in the agency’s annual budget justification. The display shall include 

appropriated funds and the Knutson-Vandenberg, Brush Disposal, Cooperative Work-Other, and Salvage Sale 

funds. Changes between estimated and actual indirect expenditures shall be reported in subsequent budget 

justifications.

Overview

Cost pool expenses support every Forest Service employee at every level of the agency. Cost pools are a financial 

management tool. The purpose is to allocate funding for items directly related to delivery of Forest Service programs 

that are not directly related to a specific program. Cost pools fund line officers’ salaries (e.g. District Rangers) and 

expenses, administrative support, information technology, human resources, computers, telephones, rent, utilities, and 

other common services.

The Forest Service receives appropriations by program and does not receive a general administration or management 

appropriation. Cost pools are not a source for funding, but are a mechanism to charge 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. 

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.

Direct 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.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 210

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 3, 4, and the indirect portion of cost pool 5).

Cost Pools 

For management and tracking purposes, categories of similar expenses are combined into five cost pools. Cost pools 1 

and 2 track those expenses defined as direct costs, cost pools 3 and 4 include those expenses classified as indirect costs, 

and cost pool 5 includes both indirect and direct components. 

The terms cost pool 6 and cost pool 7 have been previously used to describe the pooled costs for Office of Workers’ 

Compensation Programs (OWCP) and Unemployment Compensation Insurance (UCI) respectively. Please see the 

section on Other Pooled Costs below for more details.

There is no cost pool 8.

Cost pool 9 collects facilities maintenance assessment funds and assesses Forest Service programs separately from 

pools 1 through 5.

In addition to being a cost allocation mechanism, 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 and manage support, 

indirect, and direct costs at different levels of the organization. A description of these pools and their associated costs 

are listed below. 

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 Washington Office (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 for the positions that charge to this cost pool, specialized supplies and equipment, and 

discretionary expenses associated with these positions. Cost Pool 1 consists entirely of direct costs and is based on total 

Full Time Equivalents (FTEs) charged in the previous 12 months.

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, Resource 

Advisory Council administration, and Grey Towers. Cost Pool 2 consists entirely of direct costs. It is based on total 

FTEs charged in the previous 12 months.

Cost Pool 3 - Legislative and Public Communications

This cost pool includes salaries, associated employee benefits, and related costs for 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 for the positions that charge to this cost pool, specialized supplies and equipment, and 

discretionary expenses associated with these positions. Cost Pool 3 consists entirely of indirect costs and is based on 

total FTEs charged in the previous 12 months.

Cost Pool 4 - Ongoing Business Services
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 211

Cost Pool 4 includes salaries, associated employee benefits, and related costs for business operations at the WO, 

regions, stations, national forest, and ranger district levels. Business operations include budget, finance, acquisition, 

human capital management, procurement, grants and agreements, general receptionists, and information systems 

management. Cost Pool 4 consists entirely of indirect costs and is based on total FTEs charged in the previous 12 

months.

Cost Pool 5 - Common Services

This cost pool generally includes rent, utilities, corporate communications, equipment, supplies, radios, and corporate 

computer and phone related expenses for all employees. Cost Pool 5 consists of both indirect and direct pool costs. The 

distribution of costs in pool 5 is based on 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 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 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. Refer to the Facilities Maintenance Assessment Special Exhibit for more 

information.

Other Pooled Costs

OWCP and UCI do not assess Forest Service programs but are for identifying funds for payments required to 

Department of Labor. Unlike cost pools 1-5 and 9, these costs are charged directly to a program and then pooled to 

make required payments out of a single BLI. These pooled costs are used as methods of payment, and are not 

mechanisms to allocate costs.

Cost Allocations 

The Forest Service allocates 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 expenses. Cost pools are generally 

allocated using direct labor hours (DLH). DLH are converted to FTEs; 1 FTE = 2,096 DLHs (the DLH number varies 

depending on the year). For cost pools 1 to 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 approach for Cost Pools 1 to 4 is used because these costs generally reflect the entire organization. For Cost Pools 

5 and 9, only permanent employees DLHs are used, because these costs (rent, communication, utilities, etc.) are driven 

primarily by the need to support the permanent workforce. Planning estimates for OWCP and UCI are based on actual 

past cases. 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 Pools 3 and 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., OWCP and UCI) and;

 are otherwise directed by congressional or administrative action (e.g., Cost Pool 9).

Cost allocation compliance review is performed to determine the consistency in which the field organization and the 

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.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 212

FY 2018 Program Changes 

The FY 2018 President’s Budget proposes a ceiling of $880 million for cost pool expenses. This level of cost pool 

funding represents a $77 million decrease from FY 2017 levels. 

FY 2016 to FY 2018 Cost Pool (1-5) Assessments

(dollars in thousands)

Budget Line Item

FY 2016

Enacted

FY 2017

Estimates

FY 2018

Estimates

Cost Pool Assessment $957,000 $957,000 $880,000

Percent of Total Forest Service 

Budget

15.6% 15.6% 16.9%

Forest Service Cost Pool Exhibits

In FY 2018, the Forest Service is estimating that cost pools will be $880,000. For an estimate of FY 2018 Total Cost 

Pool 1-5 Assessments by Budget Line Item, see Exhibit 1.

For a comparison of FY 2016 Planned and Actual Cost Pool 1-5 Assessments and FY 2017 Estimated Cost Pool 1-5 

Assessments by Budget Line Item, see Exhibit 2.

For a display of Cost Pool Actuals for FY 2015 and FY 2016 by Pool and Region, see Exhibit 3.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 213
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 214
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 215

Exhibit 3

Cost Pool Expenditures for FY 2015 and FY 2016 by Pool and Region

(dollars in thousands)

Region 13 Washington Office –HQ funds support staff, programs, operations, and facilities of the National Headquarters office located in 

Washington, D.C. and units considered attached to the National Headquarters and includes the National Interagency Fire Center (NIFC); NIFC 

Aircraft Working Capital Fund; Geospatial- Salt Lake City; the National Advisory Resource Technical Center; the Chief’s Office; Washington 

Office Operations and Common Services; Washington Office National Forest System, State and Private Forestry, and Research; International 

Forestry; Chief Financial Officer; Law Enforcement and Investigations; San Dimas Technology and Development Center; Missoula Technology 

and Development Center; and Working Capital Fund.

Region 15 National Operations funds are held and allocated at the national level and support work and programs nationwide such as FLAME, 

Law Enforcement, and portions of other funds including USDA Working Capital Fund National Services, National Operations, Budget and 

Finance Service Wide Cost Pools, Grey Towers, Utilities and Telecommunication Services, Facilities Maintenance Cost Pool, and other Service 

Wide Cost Pools.

Region 25 Central Business Services include Albuquerque Service Center (ASC) Budget & Finance, Human Resources, Chief Information Officer, 

ASC Leases, and Acquisition Management Support for IT & Fire.

FY 2015 FY 2016

Cost Pool 1 General Management $162,176 $161,720

Cost Pool 2 Direct Project Approved Activities 13,503 12,745

Cost Pool 3 Legislative and Public Communications 32,937 33,233

Cost Pool 4 Ongoing Business Services 345,840 354,833

Cost Pool 5 Common Services 390,671 392,834

TOTAL COST POOL EXPENDITURES $945,127 $955,365

Cost Pool

FY 2015 FY 2016

Region 1 Northern $41,515 $39,778

Region 2 Rocky Mountain 36,509 34,886

Region 3 Southwestern 41,204 39,138

Region 4 Intermountain 41,355 38,446

Region 5 Pacific Southwest 64,050 58,091

Region 6 Pacific Northwest 70,718 68,000

Region 8 Southern 44,833 42,505

Region 9 Eastern 38,324 36,596

Region 10 Alaska 16,607 15,983

Region 11 Forest Products Lab 0 20

Region 12 International Institute of Tropical Forestry 1,407 1,239

Region 13 Washington Office-HQ 71,968 77,734

Region 14 Chief's Reserve 0 0

Region 15 National Operations 105,574 142,926

Region 17 Accounting Adjustments 0 0

Region 22 Rocky Mountain Research Station 0 78

Region 24 Northern Research Station 0 642

Region 25 Central Business Services 369,372 358,036

Region 26 Pacific Northwest Research Station 213 292

Region 27 Pacific Southwest Research Station 0 26

Region 33 Southern Research Station 0 112

Region 42 Northeastern Area 1,478 837

$945,127 $955,365

Region/Station/Area

TOTAL COST POOL EXPENDITURES
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 216

Equal Access to Justice Act

Background

This special exhibit is included to address requirements of House Report 112-151 page 8; Conference Report 112-331, 

page 1046, which directed:

Equal Access to Justice Act (EAJA) Fee Payments - The Committee has learned that the Forest Service does 

not comprehensively track EAJA fee payments, identify the funds used to pay EAJA fees, nor routinely make 

this information publicly available. Accordingly, the Committee directs the Forest Service to provide to the 

House and Senate Committees on Appropriations and make publicly available, and with each Agency’s 

annual budget submission thereafter, the following information: detailed reports on the amount of program 

funds used; the names of the fee recipients; the names of the Federal judges; the disposition of the applications 

(including any appeals of action taken on the applications); and the hourly rates of attorneys ad expert 

witnesses states in the applications that was awarded, for all EAJA fee payments awarded as a result of 

litigation against the Forest Service, or their respective employees. The report shall also include the 

information listed above for litigation relating to the Endangered Species Act and the amounts, outside of 

EAJA awards, paid in settlement for all litigation, regardless of the statute litigated.

Overview

The Equal Access to Justice Act was enacted in 1980 to provide individuals, small businesses and non-profit 

organizations with the means to ensure Federal agencies make their decisions transparent and in accordance with law. 

Since 2009, the Forest Service has tracked the payment of both EAJA and other attorney’s fees.

FY 2011 through FY 2016 Funding and Reporting

In FY 2012, the Forest Service provided EAJA information to the Government Accountability Office (GAO), in 

response to a request, on EAJA case names and docket/court number, the name of the award recipient, the amount of 

program funds used, and dates paid. The final EAJA report to Congress is available on the internet at the following 

link: 

http://www.fs.fed.us/aboutus/budget/requests/7105962_Equal%20Access%20to%20Justice%20Act_Letters%20and%2

0Report.pdf

Subsequent FY 2016 EAJA information is reported in Table 1 of this Special Exhibit.

The Forest Service does not track and therefore cannot report on the following information:

 the Federal judges making the awards,

 the disposition of the applications for EAJA fees (including any appeals of action taken on the applications), 

and

 the hourly rates of the attorneys and expert witnesses stated in the applications for which an award was made.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 217

Table 1. Forest Service Equal Access to Justice Act Statistics for FY 2011 through FY 2016

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

12/21/2010

CV 1:09-cv00003-JWS, 

D. AK

Tongass Conservation 

Society, Sierra Club v. 

Forrest Cole Tongass 

NF, USFS, USDA

Orion North 

Reoffer timber sale, 

Tongass NF

Earthjustice 12/28/2010 Forest Products $53,000

1/13/2011

08-01185-

MHP, D. N 

Cal

California Resources 

Agency v. USDA

Inventoried 

Roadless Areas, 

CA NFs

Earthjustice 2/9/2011

Land 

Management 

Planning

250,000

3/10/2011

CV-04-127-

M-DWM, D. 

Mont

Native Ecosystems 

Inc. v. Tidwell

Grazing Permits, 

BeaverheadDeerlodge NF

Alliance for the 

Wild Rockies 3/11/2011 Grazing Management 85,000

3/11/2011

08-01927 

CW, D. N 

Cal

Citizens for Better 

Forestry v. USDA

National Forest 

Management Act 

Western 

Environmental 

Law Center

3/17/2011

Land 

Management 

Planning

170,047

3/11/2011

08-01927 

CW, D. N 

Cal

Citizens for Better 

Forestry v. USDA

National Forest 

Management Act Earthjustice 3/17/2011

Land 

Management 

Planning

251,312

4/6/2011 10-cv-01514-

JDB

Public Employees for 

Environmental 

Responsibility v. 

USDA, USFS

Public Employees 

for 

Environmental 

Responsibility

4/8/2011 Cost Pools 1,848

4/25/2011 CV 08-43-MDWM

Forest Service 

Employees for 

Environmental Ethics 

v. USFS and National 

Marine Fisheries 

Service

Bechtold Law 

Firm PLLC 4/25/2011 Wildland Fire Suppression 95,000

5/2/2011

CV 07-1043-

JB-ACT, D. 

NM

Wildearth Guardians 

v. USFS, New Mexico 

Cattle Growers 

Association

Livestock grazing, 

Gila NF

Wildearth 

Guardians 5/12/2011 Grazing Management 27,500

5/25/2011 CV 09-164-

N-EJL, D. ID

The Lands Council v. 

Leslie Weldon Region 

1, Ranotta MaNair 

Idaho Panhandle NF, 

USFS

Bussel 484, Idaho 

Panhandle NF

Public Interest 

Defense 6/9/2011 Forest Products 50,064

5/26/2011 5:08-CV00091-TBR

Forest Service 

Employees for 

Environmental Ethics 

v. USFS

Continued 

Maintenance of 

Open Lands, Land 

Between the Lakes

Bechtold Law 

Firm PLLC 5/26/2011

Land Between 

the Lakes 

Management 

Fund

29,400

6/13/2011 09-cv-00160-

DWM

Alliance for the Wild 

Rockies v. Paul 

Bradford Kootenai NF

Grizzly Vegetation 

and Transportation 

Management 

Project

Public Interest 

Defense 6/16/2011 Timber Salvage Sales 28,000

6/20/2011 05-107M 

(DWM)

Rock Creek Alliance 

v. USFS 2001 EIS Western Mining Action Project 6/22/2011

Minerals & 

Geology 

Management

186,500
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 218

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

7/25/2011 08-1067-JCC

Conservation 

Northwest v. Harris 

Sherman and D.R. 

Johnson Lumber Co.

EIS Survey and 

Manage Mitigation 

Measure Standards 

and Guidelines, 

2007 Supplement

Western 

Environmental 

Law Center

7/27/2011 Forest Products 155,555

9/8/2011 CV F 09-392 

LJO

Sequoia Forestkeeper 

v. USFS

Special Use Permit 

to Robert Sellers 

and Quarter Circle 

Five Ranch

Paul Hastings 

LLP 9/13/2011 Landownership Management 74,640

9/8/2011 CV F 09-392 

LJO

Sequoia Forestkeeper 

v. USFS

Special Use Permit 

to Robert Sellers 

and Quarter Circle 

Five Ranch

Rene Voss 9/13/2011 Landownership 

Management 13,800

Subtotal FY 2011 $1,471,666 

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

10/6/2011

10-cv01514-

JDB

Public Employees for 

Environmental 

Responsibility v. 

USDA, USFS

Public Employees 

for Environmental 

Responsibility

10/11/2011 Cost Pools $1,848 

1/23/2012 09-cv1500-SU

Hells Canyon 

Preservation Council 

v. USFS

Sled Springs Off 

Highway Vehicle 

Trail System and 

Road Management 

Plan

Hells Canyon 

Preservation 

Council

1/27/2012

Recreation, 

Wilderness, & 

Wild and Scenic 

Rivers

79,874 

1/27/2012 10-cv6337-TC

Cascadia Wildlands 

v. USFS Daniel Kruse 1/30/2012

Forest Products

56,500 

2/15/2012

2:10-cv02830-

WBS

Center for Biological 

Diversity v. Mike 

Crawley, USFS

Motor vehicle use 

on Bridgeport 

Ranger District

Center for 

Biological 

Diversity

2/16/2012 Roads 9,000 

3/6/2012 CV 09-

107-M

Alliance for the Wild 

Rockies v. Leslie 

Weldon, USFS

Rat Creek Salvage

Western 

Environmental 

Law Center

3/6/2012

Integrated 

Resource 

Restoration

53,000 

5/29/2012 CV 07-39-

M-DWM

Montana Wilderness 

Association v. Vicki 

Christiansen, USFS

Earthjustice 6/4/2012

Recreation, 

Wilderness, & 

Wild and Scenic 

Rivers

137,000 

6/14/2012 CV 08-92-

DWM Smith Creek Bechtold Law Firm 6/19/2012

Integrated 

Resource 

Restoration

48,489 

7/5/2012 3:09-CV03048

Wilderness Society v. 

US DOI

West-Wide Energy 

Corridors Earthjustice 7/5/2012 Landownership Management 10,000 

8/8/2012 10-CV00026

Idaho Conservation 

League and The 

Wilderness Society v. 

Frank Guzman and 

USFS

Travel Management 

Plan for the SalmoChallis NFEarthjustice 8/10/2012

Integrated 

Resource 

Restoration

90,000 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 219

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

8/22/2012 11-VC830-RCC

Defenders of Wildlife 

v. USFS Hardshell Project Defenders of Wildlife 8/28/2012

Minerals and 

Geology 

Management

10,500 

9/18/2012 09-CV131 CW Sierra Club v. USFS

Ogden Ranger 

District's Motorized 

Travel Plan

Western Wildlife 

Conservancy 9/18/2012

Recreation, 

Wilderness, & 

Wild and Scenic 

Rivers

69,027 

Subtotal FY 2012 $565,237

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

10/11/2012 No.10-

2039-WHA CV-10-2039

Orleans Community 

Fuels Reduction 

(OCFR) & Forest 

Health

Marianne Dugan 10/11/2012 Hazardous 

Fuels

 

$30,000 

1/7/2013

CV-11-

125-MDWM

Friends of the Wild 

SWAN

Colt Summit NEPA 

Litigation

Western 

Environmental 

Law

1/18/2013

Land 

Management 

Planning

 40,000 

2/12/2013 12-CV286-BLW

Advocates for the 

West Inc.

Advocates for the 

West Inc. 2/12/2013 Wildlife & Fish Management 52,000 

2/28/2013 CV-01477-

GEB-CMK

Californians for 

Alternatives to 

Toxics

Paiute Cutthroat 

Trout Restoration

Western 

Environmental 

Law

3/1/2013 Wildlife & Fish 

Management 8,000 

2/28/2013 CV 11-99-

M-DWM Native Ecosystems Rebecca Smith 3/1/2013 Wildlife & Fish Management 33,279 

2/28/2013 CV 11-99-

M-DWM Native Ecosystems Tim Berchtold 3/1/2013 Wildlife & Fish Management 13,598 

3/1/2013 CV-1212-

CL

Oregon Natural 

Desert Assoc.

Environment & 

Natural Resources

Advocates for the 

West Inc. 3/1/2013 Wildlife & Fish Management 137,000 

5/9/2013 CV-00048-

WJM

National Ski Areas 

Assn. Inc.

Natural Resources 

& Environment

Ducker 

Montgomery 

Lewis /Bess, 

Williams & 

Weese, P.C.

5/9/2013

Recreation, 

Wilderness, & 

Wild and 

Scenic Rivers

 125,000 

5/23/2013 10-CV01797-JCC Wilderness Watch 

Glacier Peak 

Wilderness Are. 

Green Mountain 

Lookout.

Wilderness Watch 5/24/2013 Facilities 70,804 

5/23/2013 12-CV01757-TC

Central Oregon 

LandWatch

Bend Waterpipe 

Deschutes NF

Central Oregon 

LandWatch 5/24/2013

Vegetation & 

Watershed 

Management, 

Wildlife & Fish 

Management

 66,350 

6/18/2013 08-CV1460 PJH Watersheds Project Western 

Watersheds Project

Advocates for the 

West Inc. 6/19/2013 Grazing Management 264,358 

6/18/2013 08-CV1460 PJH Watersheds Project Western 

Watersheds Project

Keher and Van 

Nest LLP 6/19/2013 Grazing Management 172,703 

9/10/2013

09-cv01272-

WJM

WildEarth Guardians

Email sent 09/18/13 

requesting FS-6500-

224

WildEarth 

Guardians 9/18/2013

Vegetation & 

Watershed 

Management

 141,886 

9/11/2013 11-CV-95-

BLW Idaho Rivers United Idaho Rivers United Advocates for the West Inc. 9/14/2013 Roads, Wildlife & Fish 45,500 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 220

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

Management

9//19/2013 11-CV-23-

PK

Hells Canyon 

Preservation Council

Grazing CE's Hells 

Canyon

Hells Canyon 

Preservation 

Council

9/17/2013

Recreation, 

Wilderness, & 

Wild and 

Scenic Rivers

 136,500 

9/24/2013

09-cv2523-LKKJFM

Center for Sierra 

Nevada Conservation

National Forest 

Management 

Act/Endangered 

Species Act

Bahr Law Offices, 

P.C. 9/25/2013 Trails 110,000 

9/25/2013

10-cv00612-EJLREB

Western Watersheds 

Project

FC #7600034286 

created & posted 

09/25/13 - Waiting 

for final settlement 

approval amount to 

pay

Advocates for the 

West Inc. 11/14/2013 Hazardous Fuels 125,000 

9/5/2013

11-cv02921-

MCE-DAD

Snowlands Network, 

Winter Wildlands 

Alliance & Center for 

Biological Diversity

Over snow vehicle 

(OSV) recreation

Advocates for the 

West Inc. 9/6/2013

Vegetation & 

Watershed 

Management

 15,000 

Subtotal FY 2013 $1,586,978

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

9/25/2013

10-cv00612-EJLREB

Western Watersheds 

Project

Western 

Watersheds Project

Advocates for the 

West Inc. 11/14/2013

Hazardous 

Fuels 

Reduction

 

$125,000 

1/10/2014 3-11-CV895-STFriends of the 

Columbia Gorge Inc.

Special 

Management Area

Friends of the 

Columbia Gorge 

Inc.

1/10/2014 Land 

Management 

Planning, & 

Landownership 

Management

17,855 

3/14/2014 CV-12-27-

M-DLC

Native Ecosystems 

for the Wild Rockies

Fleecer Mountains 

Project

Public Interest 

Defense 3/19/2014

Integrated 

Resource 

Restoration

 

19,802 

3/19/2014 CV-10-

2141

Breaker- Attorney's 

Fees Martin Breaker Siegel Brill P.A Trust 3/21/2014 Landownership Management

 

155,000 

3/21/2014 13-CV1827-CL

Murphy Co High 

Cascade Inc.

Stipulation for 

Temporary Stay of 

Proceedings

American Forest 

Resource Council 3/24/2014 Forest Products 7,500 

4/24/2014

13-CV01157-

TLN-AC

Porcupine Vegetation 

& Road Management 

Project

Porcupine 

Vegetation & Road 

Management 

Project

Sean Malone -

Attorney at Law 5/8/2014 Forest Products 3,500 

5/1/2014 12-CV00804-AA

Goose ProjectWillametteCascadia Wildlands 

and Oregon Wild

Western 

Environmental 

Law Center

5/2/2014 Forest Products 

60,000 

5/22/2014 PIOGA

Pennsylvania 

Independent Oil & 

Gas Assoc

Pennsylvania 

Independent Oil & 

Gas Assoc

Pennsylvania 

Independent Oil & 

Gas Assoc

5/23/2014

Minerals 

Geology 

Management

 

530,000 

6/5/2014

10-CV02172-

KJM-AC

Central Sierra 

Environmental 

Resource Center, The 

Wilderness Society, 

and Public 

Employees for 

Environmental 

Responsibility

California 

Association of 4-

wheel Drive Clubs 

(Alleged violations 

of NEPA & APA)

Earthjustice 5/23/2014

Recreation 

Heritage 

Wilderness, & 

Vegetation 

Watershed 

Management

 

100,000 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 221

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

6/24/2014

12-CV02416-

WBS-KJN

Conservation 

Congress v. USFS. 

Tatham Project 

(NEPA)(ESA).

Tatham Project 

(NEPA)

Marianne G 

Dugan PC 

Attorney Trust

6/24/2014 Forest Products 

36,500 

9/12/2014 4:08-CV00363-EJL

The Wilderness 

Society & Prairie 

Falcon Audubon, Inc. 

v. USFS & Magic 

Valley Trail Machine 

Assoc.

Western 

Environmental 

Law Center

9/15/2014

Roads-Capital 

Improvement & 

Maintenance, 

Trails-Capital 

Improvement & 

Maintenance, 

Grazing 

Management, 

Recreation 

Heritage 

Wilderness, & 

Integrated 

Resource 

Restoration 

 

120,000

9/11/2014 Citizens for Healthy 

Communities

Funds 

Committed, 

Pending Final 

Judgment 

Information

Minerals 

Geology 

Management

60,000

9/26/2014

11-CV00679-

LJO-DLB

11-CV-00679-LJODLBMatt Kenna, 

Attorney 9/26/2014

Land 

Management 

Planning

 

100,000 

FY 2014 Subtotal $1,335,757

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

10/30/2014 4:12-CV00384-REB

Greater 

Yellowstone 

Coalition v. Forest 

Service

Western 

Environmental 

Law Center 

IOLTA

11/24/2014

Trails-Capital 

Improvement & 

Maintenance 

$32,000.00

12/11/2014 3:10-CV01397-SILeague of 

Wilderness 

Defenders/Blue 

Mountains 

Biodiversity Project 

v. USFS

Blue Mountains 

Biodiversity 

League of 

Wilderness 

Defenders

2/18/2015 Vegetation 

Watershed 

Management

179,699.90

01/18/2015 2:14-CV-00729 Western 

Watersheds Western Watersheds Ryberg Erik 1/21/2015

Integrated 

Resource 

Restoration

5,350.00

01/12/2015 2:13-CV-0832-

KJM-DAD

Mill Fire Salvage & 

Hazard Tree 

Removal 

Mill Fire Salvage & 

Hazard Tree 

Removal

Ryberg Erik 1/21/2015 Forest Products 86,000.00

01/27/2015 14-CV-00284-

JLK

Citizens for Healthy 

Communities v. 

USFS

Western 

Environmental 

Law Center 

IOLTA

1/29/2015

Minerals 

Geology 

Management

25,000.00

01/29/2015 10-CV-03004-

CL Eric Navickas, et al Ashland Forest Resiliency Sean T Malone 2/23/2015 Forest Products 45,000.00

2/06/2015 13-CV-01723-

RBJ

High Country 

Conservation 

Advocates

Attorney’s Fees Earthjustice 3/11/2015

Minerals 

Geology 

Management

116,136.60

4/30/2015 3:10-CV01397-SI

League of 

Wilderness 

Defenders/Blue 

Mountains 

Biodiversity Project 

v. USFS

Blue Mountains

Biodiversity

League of 

Wilderness 

Defenders

8/07/2015

Vegetation 

Watershed 

Management

155,000.00

8/14/2015 CV-14-1198 Public Employees Attorney’s Fees Public 8/13/2015 Pool 1 Cultural 4,000.00
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 222

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

(CKK) for Environmental 

Responsibility

Employees for 

Environmental 

Responsibility

Transformation

8/28/2015 CV-11-95-MDWM Mark Kowack

Joint Stipulation to 

Settlement For 

Attorney’s Fees

Antonioli & 

Wade PC 8/28/2015 PD Civil Rights & HR ER LR 32,166.80

FY 2015 Subtotal $680,353.30

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

11/12/2015 11-CV-586-

REB

Winter Wildlands 

Alliance v. United 

States Forest 

Service

WINTERLANDS Advocate for the 

West 11/14/2015

Recreation 

Heritage 

Wilderness

$86,000.00 

11/15/2015 11-CV-00246-

WYD

The Wilderness 

Society, Quiet Use 

Coalition, 

Wildearth 

Guardians Rocky 

Mountain Wild, and 

Great Old Broads 

for Wilderness,

Plaintiff(s), v.

United States Forest 

Service, a Federal 

agency within the 

U.S. Department of

Agriculture, and 

Erin Connely, in her 

official capacity as 

Forest Supervisor 

for the Pike

and San Isabel 

National Forests,

Defendant(s), and

Colorado Off 

Highway Vehicle 

Coalition Trails 

Preservation 

Alliance, and the 

Blueribbon 

Coalition, 

Intervenor 

Defendants.

WILDEARTH 

GUARDIANS EARTHJUSTICE 11/16/2015

Recreation 

Heritage 

Wilderness

$90,638.48 

12/1/2015 15-CV-00860-

PK

Cascadia Wildlands 

vs. USFS Cascadia Wildlands

Western 

Environmental 

Law Center

12/8/2015

Land 

Management 

Planning

$8,000.00 

12/1/2015 13-CV-00810-

HZ

Gifford Pinchot 

Task Force v. 

Jerome E. Perez, Jr., 

Oregon/Washington 

State Director, 

Bureau of Land 

Management 

("BLM"); United 

States Department 

of the Interior, 

BLM; Janine 

Clayton, Forest 

Supervisor, Gifford 

Pinchot National 

Forest; and the 

United States Forest 

Service, United 

States Department 

Lewis & Clark 

College (Law 

School) Earthrise 

Law Center

12/8/2015

Minerals 

Geology 

Management

$77,500.00 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 223

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

of Agriculture 

("USFS") 

12/1/2015 11-8128-PCTNVW

Western Watershed 

Project and the 

Center for 

Biological 

Diversity, v. U.S. 

Forest Service

Western 

Watersheds Project 

& the Center for 

Biological Diversity

Erik 

Ryberg/Western 

Watersheds 

Project

12/8/2015

Integrated 

Resource

Restoration

$17,556.00 

2/9/2016 CV-13-129-MDWM

Swan View 

Coalition, et al., v.

Chip Weber, 

Flathead National

Forest Supervisor, 

et al.

Glacier Loon 

Project. Swan 

View Coalition

Public Interest 

Defense Center 

PC

2/11/2016

Integrated 

Resource

Restoration

$10,000.00 

2/23/2016 13-CV-515-EJL

Friends of the 

Clearwate1; et al v. 

United States

Forest Service

Friends of the 

Clearwater. 

Clearwater, 

Alliance for the 

Wild Rockies, and 

Sierra Club

Bahr Law Office P 

C

2/23/2016

Integrated 

Resource

Restoration

$48,703.85 

2/23/2016 13-CV-515-EJL

Friends of the 

Clearwate1; et al v. 

United States

Forest Service

Friends of the 

Clearwater. 

Clearwater, 

Alliance for the 

Wild Rockies, and 

Sierra Club

Bahr Law Office P 

C

2/23/2016

Roads-Capital 

Improvement & 

Maintenance

$16,234.62 

3/24/2016 12-CV-02271-

HZ

League of 

Wilderness, 

Defenders/Blue 

Mountains 

Biodiversity 

Project,

et al., Plaintiffs, v.

James M. Pena, et 

al., Federal 

Defendants, and

American Forest 

Resource Council, 

et al.,

League of 

Wilderness, 

Defenders/Blue 

Mountains 

Biodiversity 

Project. Earthrise 

Law Center

Lewis & Clark 

College 3/29/2016 Forest Products $211,000.00 

3/24/2016 12-CV-02271-

HZ

League of 

Wilderness, 

Defenders/Blue 

Mountains 

Biodiversity 

Project,

et al., Plaintiffs, v.

James M. Pena, et 

al., Federal 

Defendants, and 

American Forest 

Resource Council, 

et al.,

League of 

Wilderness, 

Defenders/Blue 

Mountains 

Biodiversity 

Project. Earthrise 

Law Center

Lewis & Clark 

College 3/29/2016

Recreation 

Heritage 

Wilderness

$19,000.00 

3/24/2016 12-CV-02271-

HZ

League of 

Wilderness, 

Defenders/Blue 

Mountains 

Biodiversity 

Project,

et al., Plaintiffs, v.

James M. Pena, et 

al., Federal 

Defendants, and 

American Forest 

Resource Council, 

et al.,

League of 

Wilderness, 

Defenders/Blue 

Mountains 

Biodiversity 

Project. Earthrise 

Law Center

Lewis & Clark 

College 3/29/2016

Wildlife 

Fisheries

Habitat

Management

$26,000.00 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 224

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

3/24/2016 12-CV-02271-

HZ

League of 

Wilderness, 

Defenders/Blue

Mountains 

Biodiversity 

Project,

et al., Plaintiffs, v.

James M. Pena, et 

al., Federal 

Defendants, and 

American Forest 

Resource Council, 

et al.,

League of 

Wilderness, 

Defenders/Blue 

Mountains 

Biodiversity 

Project. Earthrise 

Law Center

Lewis & Clark 

College 

3/29/2016

Vegetation 

Watershed 

Management

$18,000.00 

3/24/2016 12-CV-02271-

HZ

League of 

Wilderness, 

Defenders/Blue 

Mountains 

Biodiversity 

Project,

et al., Plaintiffs, v.

JAMES M. PENA, 

et al., Federal 

Defendants, and 

American Forest 

Resource Council, 

et al.,

League of 

Wilderness, 

Defenders/Blue 

Mountains 

Biodiversity 

Project. Earthrise 

Law Center

Lewis & Clark 

College 3/29/2016 Hazardous Fuels Reduction $126,000.00 

3/25/2016 15-CV-01066-

RSL

Alpine Lakes 

Protection 

Society/Kittitas 

Audubon Society &

Sierra Club, nonprofit corporations 

v. U.S. Forest 

Service, an agency 

of the U.S. 

Department of 

Agriculture and 

Mike Williams, in 

his official capacity 

as Forest Supervisor 

for the OkanoganWenatchee National 

Forest

Alpine Lakes 

Protection 

Society/Kittitas 

Audubon Society & 

Sierra Club.

Bahr Law Office P 

C

3/29/2016

Recreation 

Heritage 

Wilderness

$10,000.00 

3/25/2016 15-CV-01066-

RSL

Alpine Lakes 

Protection 

Society/Kittitas 

Audubon Society & 

Sierra Club, and 

non-profit 

corporations v. U.S. 

Forest Service, an 

agency of the U.S. 

Department of 

Agriculture and 

Mike Williams, in 

his official capacity 

as Forest Supervisor 

for the OkanoganWenatchee National 

Forest

Alpine Lakes 

Protection 

Society/Kittitas 

Audubon Society & 

Sierra Club.

Bahr Law Office P 

C

3/29/2016

Recreation 

Heritage 

Wilderness

$22,000.00 

5/25/2016

1:14-CV00341-LJOSKO

Sequoia Keeper, v. 

Teresa Benson, et al

Giant Sequoia 

National Monument 

Management Plan 

Rene P Voss 5/25/2016 Forest Products $98,000.00 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 225

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

7/7/2016 1:12-CV-4-

REB

Idaho Conservation 

League v. 

Farnsworth

Idaho Conservation 

League. Healthy 

Forests Restoration 

Act

Earthjustice

7/7/2016

Integrated 

Resource 

Restoration

$45,000.00 

7/15/2016 CV 10-104-MDWM

Wildearth 

Guardians, et al. v.

U.S. Forest Service, 

et al.,

Wildearth 

Guardians

Jack Tuholske 

Attorney at Law 

PC 7/22/2016

Recreation 

Heritage 

Wilderness

$103,060.00 

7/19/2016 08-CV-00394

Idaho Wool 

Growers 

Association, and 

North American 

Packgoat 

Association, v 

Thomas Vilsack, in 

his official capacity 

as Secretary of the 

United States 

Department of 

Agriculture, 

Thomas Tidwell, in 

his official capacity 

as Chief of the 

United States Forest 

Service, and U.S. 

Forest Service

Idaho Wool 

Growers 

Association. 

Shoshone Land 

Management. 

RADT Reports

Andrew A Irvine 

PC 7/20/2016

Pool 1 General

Management, 

Wildlife 

Fisheries Habitat 

Management

$140,000.00 

8/10/2016

Pacific Coast 

Federation 

Fisherman’s 

Association

Pacific Coast 

Federation of 

Fishermen's

Black Butte River 

& Cold Creek

Law Offices of 

Stephan C Volker 8/18/2016

Recreation 

Heritage 

Wilderness, 

Landownership 

Management, 

Vegetation 

Watershed 

Management, 

Hazardous Fuel 

Reduction

$50,350.00 

8/31/2016 2:11-CV-1647-

MCE-CMK

Klamath Siskiyou 

Wildlands Center, 

et al. v. Patricia 

Grantham, et al.

Oak Knoll Range 

Project Klamath 

National Forest

Law Office of 

David H Becker 

LLC

9/6/2016

Inventory & 

Monitoring, 

Landownership 

Management,

Land 

Management 

Planning, 

Vegetation 

Watershed 

Management, 

Minerals & 

Geology 

Management

$196,000.00 

9/6/2016 3:15-CV00169-BLW

Idaho River United 

and Morgan Wright, 

Olga Wright v. 

DISTRICT 

RANGER JOE 

HUDSON in his 

official capacity, 

and UNITED 

STATES FOREST 

SERVICE

Idaho Rivers

Advocate for the 

West

9/7/2016

Integrated 

Resource 

Restoration

$65,000.00 

9/9/2016 5:12-CV01841-TJH-OP

Richard Fragosa, 

Peter Wiechers, 

Alasdair Coyne, and 

John Karevoll v.

U.S. Forest Service 

Fragosa

Matt Kenna 

Attorney

9/13/2016 Pool 4 Ongoing 

Bus Svs $170,000.00 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 226

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

including Randy 

Moore, in his 

official

capacity as 

Regional Forester 

for the Pacific 

Southwest Region 

of the U.S. Forest

Service.

9/9/2016 1:09-CV00023-JWS

Organized Village 

of Kake, et al.,

Plaintiffs,

v.

Unites States 

Department of 

Agriculture, et al.,

Defendants,

and State of Alaska 

and Alaska Forest 

Association,

Tongass 

Conservation 

Society

Earth Justice

9/14/2016

Trails-Capital 

Improvement & 

Maintenance, 

Inventory & 

Monitoring, 

Recreation 

Heritage 

Wilderness, 

Forest Products

$250,000.00 

9/27/2016 CV-14-02446-

RUC-RM

Defenders of 

Wildlife, et al.

v.

United States Forest 

Service, et al.,

Western Mining 

Action

Advocates for the 

West

9/27/2016 Pool 4 Ongoing 

Bus Svs $60,000.00 

9/27/2016 CV-14-02446-

RUC-RM

Defenders of 

Wildlife, et al.

v.

United States Forest 

Service, et al.,

Western Mining 

Action Project

Advocates for the 

West

9/27/2016

Integrated 

Resource 

Restoration, 

Minerals 

Geology 

Management

$115,000.00 

9/28/2016 CV-10-0330-

AWT

Center for 

Biological Diversity 

v. Nicole Branton, 

et al. and Ward 

Arizona Ranch 

Properties, LLC

Center for 

Biological Diversity 

& Ward Arizona 

Ranch Properties 

LLC

Advocates for the 

West

9/28/2016

Recreation 

Heritage 

Wilderness, 

Integrated 

Resource 

Restoration 

$55,673.83 

FY 2016 Subtotal $2,134,716.78
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 227

Facilities Maintenance Assessment

Background

This exhibit is included to address requirements of P.L. 109-54 Conference Report 109-188 page 125, which directed:

There should also be a display which indicates, by national forest, research station and area, the funding being 

allocated for facilities maintenance. The budget justification displays shall indicate, for every budget line item, 

the funding amount being assessed for facilities maintenance. This information should be readily visible along 

with each program description.

Overview

In FY 2006, Congress authorized a multi-program assessment of up to $35 million for maintenance of agency-owned 

buildings in the categories 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 Appropriations and Trust Fund accounts were assessed. In 

FY 2013, the assessment limit was increased to $55 million and it increased to $65 million in FY 2016. The facility 

maintenance assessment applies only to Forest Service-owned FA&O space and does not include leased space.

Using program assessments to fund facility maintenance provides an incentive to identify and invest in only those 

facilities that are needed to accomplish the agency’s mission, to dispose of surplus buildings, and to exercise restraint 

on starting new construction because the programs bear the cost of maintaining these facilities. This provides financial 

accountability by representing the cost of conducting business operations for land management purposes. 

In FY 2017, units (Region, Station, or other units) requested assessments totaling just over $65 million and allocations 

up to the cap of $65 million were made based those requested amounts. The assessments range from $1.16 to $4.50 per 

square foot which falls within the limits of four percent of the facility replacement value and seven dollars per square 

foot. Assessments are distributed across eligible budget line items based on each program’s prior year direct labor hour 

charges for permanent employees. Details of the Facilities Maintenance (CP09) Assessment by budget line item for FY 

2015, 2016, and FY 2017 are included in tables at the end of this exhibit. For FY2018, we request that the $65 million 

cap remain in place, but we will track FY2018 levels and ensure the final FY2018 assessment levels are proportional to 

available funding.

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, storage buildings, and nurseries; and other 

facilities, such as telecommunication facilities, towers, dams, and major recreation visitor centers. Generally, routine 

maintenance costs for these facilities come from funds collected by this assessment, while more expensive maintenance 

needs are funded through the Capital Improvement, Facilities Maintenance or Deferred Maintenance and Infrastructure 

Improvement budget line items. 

The Forest Service currently maintains approximately 40,000 Forest Service-owned facilities including 16,300 

administrative buildings and 5,700 recreation buildings. The agency also maintains an inventory of approximately 

1,700 Forest Service-owned, special use permitted, and other dams as well as numerous other facilities including 

approximately 4,780 water and 4,760 wastewater systems and numerous communication facilities. The current large 

inventory is a legacy of former management needs and practices with many facilities in disrepair as evidenced by a 

significant deferred maintenance backlog.

Federal mandates including the Energy Independence and Security Act of 2007 and Energy Policy Act (EPAct) of 

2005 in combination with Executive Orders (EO) 13514, 13423, and 13717 require energy, water, earthquake hazard 

management, and other environmental impact reductions. 

Facilities Maintenance Assessment funds are also used to accomplish the following:
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 228

 Conduct energy and water efficiency evaluations to identify energy and water conservation measures per the 

Energy Independence and Security Act of 2007 and to reduce building energy intensity to meet greenhouse 

gas emission targets per EO 13514.

 Conduct assessments of existing buildings and incorporate necessary improvements to existing buildings to 

meet the guiding principles per EO 13514 including increasing energy efficiency; reducing greenhouse gas 

emissions; protecting water resources through efficiency, reuse, and stormwater management; eliminating 

waste, recycling, and preventing pollution; and designing, constructing, maintaining, and operating 

sustainable buildings.

 Install renewable energy sources where economically feasible per the EPAct of 2005.

 Install advanced metering systems to measure, verify, and improve utility consumption per the EPAct of 2005.

 Decommission or dispose of surplus facilities thereby reducing deferred maintenance and amount of square 

footage requiring maintenance.

Past Performance

Accomplishments related to buildings and similar structures are included under the Capital Improvement and 

Maintenance Facilities Section. The following tables display the distribution of the assessment by program for FY 

2015, FY 2016, and FY 2017*as well as the FY 2017*allocations by unit.

Facilities Maintenance (CP09) Assessment by BLI

FY 2015, FY 2016, and FY 2017*

(dollars in thousands)

BLI Description

Budget 

Line 

Item

FY 2015 

Facilities 

Maintenance 

Assessment

FY 2016 

Facilities 

Maintenance 

Assessment

FY 2017 

Facilities 

Maintenance 

Assessment*

Forest & Rangeland Research

Total Forest & Rangeland Research FRRE $3,960 $4,680 $4,810

State & Private Forestry 

Forest Stewardship SPST $55 $73 $65

Forest Health Mgmt. – Coop. Lands SPCH 110 308 195

Forest Health Mgmt. - Fed Lands SPFH 660 607 715

Urban and Community Forestry SPUF 55 65 65

Total State & Private Forestry $880 $1,053 $1,040

National Forest System

Collab. Forest Landscape Rest. CFLN $605 $815 $715

Land Management Planning NFPN 605 668 520 

Grazing Management NFRG 1,045 1,208 1,235 

Forest Products NFTM 5,170 6,913 6,955 

Landownership Management NFLM 1,430 1,593 1,560 

Inventory & Monitoring NFIM 1,705 1,974 2,145 

Minerals and Geology Mgmt. NFMG 1,210 1,395 1,365 

Integrated Resource Restoration NFRR 4,015 4,994 4,940 

Recreation, Heritage, & Wilderness NFRW 5,225 5,631 5,785 

Wildlife & Fisheries Habitat Mgmt. NFWF 1,925 2,189 2,275 

Vegetation and Watershed Mgmt. NFVW 2,035 2,290 2,275 

Total National Forest System $24,970 $29,670 $29,770

Capital Improvement & Maintenance

Facilities CMFC $1,045 $1,232 $1,105 

Roads CMRD 2,640 2,890 2,925 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 229

Facilities Maintenance (CP09) Assessment by BLI

FY 2015, FY 2016, and FY 2017*

(dollars in thousands)

BLI Description

Budget 

Line 

Item

FY 2015 

Facilities 

Maintenance 

Assessment

FY 2016 

Facilities 

Maintenance 

Assessment

FY 2017 

Facilities 

Maintenance 

Assessment*

Trails CMTL 1,210 1,530 1,495 

Legacy Road Remediation CMLG 220 204 195 

Total Capital Improvement & Maintenance $5,115 $5,856 $5,720

Land Acquisition

Total Land Acquisition LALW $110 $148 $130

Wildland Fire Management

Preparedness WFPR $13,915 $16,698 $16,445 

Hazardous Fuels Reduction WFHF 4,070 4,488 5,005 

Coop Fire Plan - State Fire Assist. WFCF 55 67 65 

Total Wildland Fire Management $18,040 $21,253 $21,515

Permanent Appropriations

Brush Disposal BDBD $110 $197 $130

Timber Salvage Sales SSSS 605 584 715

Total Permanent Appropriations $715 $781 $845

Trust Fund Appropriations

Cooperative Work – KV CWKV $825 $861 $715

Reforestation Trust Fund RTRT 385 369 455

Total Trust Fund Appropriations. $1,210 $1,230 $1,170

TOTAL $55,000 $64,671 $65,000

*Based on Further Continuing and Security Assistance Appropriations Act, 2017. Will be updated as needed.

FY 2017 Facilities Maintenance Initial Assessment and Allocation by Unit

Based on Further Continuing and Security Assistance Appropriations Act, 2017

Unit Name Total Gross Square 

Feet (GSF)

Dollars per 

GSF

Total Initial 

Assessment & 

Allocation

(dollars in thousands)

Regions

Northern Region 3,016,509 $2.32 $7,000

Rocky Mountain Region 1,972,819 $2.13 $4,200 

Southwestern Region 2,375,287 $2.61 $6,200 

Intermountain Region 2,695,212 $2.28 $6,137 

Pacific Southwest Region 4,972,405 $2.03 $10,100 

Pacific Northwest Region 4,876,044 $2.05 $10,000 

Southern Region 3,216,933 $2.09 $6,709 

Eastern Region 3,706,768 $1.75 $6,500 

Alaska Region 665,362 $4.10 $2,729 

Region Subtotal 27,497,339 $21.36 $59,575

Research Stations

Forest Products Lab 453,797 $1.68 $762 

Int’l Inst. of Tropical Forestry 30,401 $3.75 114 

Rocky Mountain Station 462,240 $2.06 950 

Northern Station 459,898 $1.83 840 

Pacific Northwest Station 279,214 $2.86 799 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 230

FY 2017 Facilities Maintenance Initial Assessment and Allocation by Unit

Based on Further Continuing and Security Assistance Appropriations Act, 2017

Unit Name Total Gross Square 

Feet (GSF)

Dollars per 

GSF

Total Initial 

Assessment & 

Allocation

(dollars in thousands)

Pacific Southwest Station 257,517 $1.16 300 

Southern Research Station 443,142 $2.43 1,075 

Research Station Subtotal 2,386,209 $2.03 $4,840 

Other Units

Technology & Development Centers 207,173 $0.83 $171 

Grey Towers 49,253 $2.31 114

Wood Education 66,691 $4.50 300

Other Units Subtotal 323,117 $1.81 $585 

Total 30,206,665 $2.15 $65,000
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 231

Farm Bill Implementation

Background

Section 8204 of the Farm Bill amends the Healthy Forest Restoration Act (HFRA), by adding sections 602 and 603 to 

the end of HFRA. Section 602 outlines the designation requirements for landscape scale areas. Section 603 creates a 

new categorical exclusion to reduce the risk or extent of, or increase the resilience to, insect, or disease infestation in 

areas designated under section 602 as landscape scale areas. Section 603 also sets out annual reporting requirements.

The Good Neighbor Authority (Title VIII Sec. 8206 of the Agricultural Act of 2014, i.e. “Farm Bill,” and Title IV, Sec. 

417 of the Consolidated Appropriations Act, 2014) allows the Forest Service to enter into cooperative agreements or 

contracts with States and Puerto Rico to allow them to perform watershed restoration and forest management services 

on federal and non-federal lands. Agreement templates for both authorities were approved by Office of Management 

and Budget in June 2015. Fifty-seven agreements in 22 States have been executed with the Forest Service to perform a 

variety of restoration services.

Insect and Disease Designations

 Based on requests from the states, the Forest Service has designated approximately 45.6 million acres across 

the National Forest System that are either already experiencing or are at risk of experiencing insect and 

disease infestations. Furthermore, the Chief designated an additional 10.1 million acres of National Forest 

System lands based on requests from Regional Foresters, bring the total areas designated to 55.7 million acres.

Agency Implementation Efforts
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 232

The agency will continue to build on these efforts in an expedited manner. Thus far, seventy-four projects have been 

proposed under the Farm Bill Insect and Disease provisions. Sixty-three of these projects are utilizing the new 

Categorical Exclusion (CE). Eight projects are utilizing an Environmental Assessment (EA). Three projects are 

utilizing an Environmental Impact Statement (EIS). Forty-five Farm Bill decisions have been signed (41 CEs, 3 EAs 

and 1 EIS). Projects proposed actions vary, including commercial timber harvesting, pre-commercial harvesting; 

prescribe burning, and chemical and biological control of pest species. Several additional projects are under 

development and will be included in future reports.

Good Neighbor Authority

The agency continues to grow relationships with State partners using the Good Neighbor Authority. Since July 2015, 

Good Neighbor agreements have been established in 22 States including: Alabama, Alaska, Arizona, California, 

Colorado, Florida, Georgia, Idaho, Indiana, Louisiana, Michigan, Minnesota, Montana, New Hampshire, Oregon, 

Pennsylvania, Tennessee, Texas, Utah, Vermont, Wisconsin and Wyoming. Many of them are long-term agreements 

up to ten years and presently all of them rely on the permanent authority provided in the Farm Bill.

Project agreements are being used to complete a wide range of restoration activities on National Forest System lands. 

For example, the Chequamegon-Nicolet National Forest and the State of Wisconsin developed a program that serves as 

a model for other states and national forests. This partnership with Wisconsin Department of Natural Resources is on 

track to complete timber sales, wildlife habitat improvements, and other restoration activities on 4,000 to 5,000 acres 

annually. This will yield approximately 25 million board feet and more than $2 million in project value each year. At 

least four other states have adopted similar plans. Projects in other states include prescribed burning; inventory and 

removal of non-native invasive plants; Douglas-fir tussock moth treatment across Federal, State, municipal, and private 

lands; wildlife habitat survey and improvement; rangeland vegetation treatments; and many other activities. 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 233

Fire Transfers

Background

This exhibit is not required by Congressional direction; however, it is included to provide an update on the status of 

funds borrowed from other budget line item accounts and transferred to the Wildland Fire Management Suppression 

account for the purpose of emergency fire suppression.

Overview

Transfers for fire suppression occur when the agency has exhausted all available fire resources from the Suppression 

and FLAME accounts. Congressional appropriations currently fund the agency at around the 10-year average for 

wildland fire suppression costs. If wildland fire suppression costs exceed the 10-year average and any available 

suppression balances, the Forest Service must receive a supplemental appropriation or execute fire transfer(s) from 

other program accounts for fire suppression expenditures. 

Unlike previous years, the Forest Service did not transfer funds from other program areas in FY 2016. The total cost of 

wildfire suppression in FY 2016 was $1.6 billion, which was covered by funds Congress appropriated for suppression 

($811 million) and the FLAME account ($823 million). 

The following table lists the funds that were not fully repaid from fire transfers that occurred from FY 2002 through 

FY 2016.

Funds Withdrawn for Transfer for Wildland Fire Suppression

and Not Repaid from FY 2002 to FY 2016

(dollars in thousands)

Appropriation FY 2002 FY 2003 FY 2006 FY 2007 FY 2008 Amount

Forest & Rangeland Research $- $32 $- $- $- $32 

State and Private Forestry - 3,099 - - - 3,099 

National Forest System 33,000 73,167 - - - 106,167 

Capital Improvements and Maintenance 25,000 10,305 - - - 35,305 

Land Acquisitions - 4,308 5,000 - - 9,308 

Brush Disposal - 64 - - - 64 

Federal Lands Recreation Enhancement Fund - 45 - - - 45 

Timber Purchaser Election Road Construction - 90 10,000 20,000 - 30,090 

Timber Salvage Sales - 112 - - - 112 

Restoration of Forest Lands and Improvements - - - - 20,000 20,000 

Working Capital Fund 65,000 11,029 10,000 - - 86,029 

Wildland Fire Preparedness 80,000 - - - 13,786 93,786 

Forest Land Enhancement Program - 40,032 - - - 40,032 

Total $203,000 $142,283 $25,000 $20,000 $33,786 $424,069 

Note 1: From FY 2009 through FY 2016 all fire transfers have been repaid in full. For FY 2004 and FY 2005 there was not a need for fire transfers.

Note 2: WFPR and FLEP are not to be repaid ($133,818 combined), resulting in a true total unpaid amount of $290,251.

- Regarding FLEP: FLEP was adopted in the 2002 Farm Bill and the Program’s funding authority expired in 2007. 

- Regarding WFPR: Congress has provided the Forest Service the following authority in the relevant annual appropriations: “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 if and only if

all previously appropriated emergency contingent funds under the heading “Wildland Fire Management'” have been released by the President and 

apportioned and all funds under the heading “Wildland Fire Management” are obligated.” Funds transferred from WFPR to fire suppression efforts 

fall under the Wildland Fire Management umbrella, as both Preparedness and Suppression are part of that Program. 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 234

National Scenic and Historic Trails

Background

This special exhibit is included to address requirements of P.L. 111-88 House Report 111-180 page 132, which 

directed:

The Committee recommendation retains previous base funding for maintenance, construction, and operation 

of the network of national scenic and historic trails but encourages additional funding for required work of the 

newly authorized national trails. Future budget justifications should continue to provide specific trail 

operation, maintenance and construction funding and accomplishment data for the national scenic and historic 

trails. The Forest Service should provide full time administrators and prepare the required comprehensive 

management plans for the newly authorized national trails.

Overview

Since the enactment of the National Trails System Act in 1968, the Forest Service has designated trail administrators 

for six National Scenic and Historic Trails (NS&HT): Arizona, Continental Divide, Florida, Nez Perce (Nee Mee Poo), 

Pacific Crest, and Pacific Northwest. The Forest Service manages portions of 15 additional NS&HTs on National 

Forest System (NFS) lands, in cooperation with the Department of the Interior (DOI), Department of State and county 

governments, and private partners. 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. In previous years, the Forest Service has had full administrative responsibility for 

the Appalachian Trail. Currently, the Appalachian Trail is managed in partnership with the National Park Service 

(NPS). The Forest Service Southern Region (Region 8) provides a liaison for trail management and activities, so 

accomplishments are the result of collaboration between the NPS and the Forest Service.

Appalachian National Scenic Trail (AT)

This 2,190-mile footpath crosses along the ridge crests and across the major valleys of the Appalachian Mountains 

from Mt. 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, section-hikers, 

and through-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 and is administratively managed by the 

National Park Service.

Arizona National Scenic Trail (ANST)

Designated on March 30, 2009, through the Omnibus Public Land Management Act (P.L. 111- 11), the AZNST 

extends 807 miles across the State of Arizona showcasing its diverse vegetation, wildlife, geology and scenery, and 

providing unparalleled opportunities for hikers, mountain bikers, and equestrians. Seventy three percent of the trail is

on national forest lands. The iconic landscapes that give this national scenic trail its cherished and unique character are 

not static. Arizona is rich in minerals and many proposed mining projects threaten to relocate the trail and forever 

change the beautiful, timeless vistas that people come from thousands of miles to enjoy. Other threats include energy 

projects, wildfires, and development. There is inadequate corridor protection for over 90 miles on State Trust land. 

These challenges are being addressed by the Forest Service in the ongoing development of the Comprehensive Plan for 

trail administration and management. The agency is also in the process of identifying the national trail right-of-way 

required under 16 U.S.C. 1246(a)(2).

Continental Divide National Scenic Trail (CDT)

Designated November 10, 1978, the 3,100 mile long CDT spans the wild, spectacular mountain country along the spine 

of the Rocky Mountains from Mexico to Canada. The route connects 20 National Forests, three National Parks, one 

National Monument, 13 Bureau of Land Management field offices, historic and traditional cultural sites, and primitive 

wildlands. Approximately 90 percent of the trail is located within publicly owned lands; however, many trail segments 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 235

are currently co-located along with open roads or motorized trails. Easements are lacking across numerous parcels of 

private and State land (including 32 State-owned parcels in New Mexico alone) and are needed to secure a continuous 

route available for permanent public use.

Florida National Scenic Trail (FNST)

Added to the national trails system in 1983, the FNST consists of a 1,300 mile planning corridor stretching from Big 

Cypress National Preserve in the Everglades to Gulf Islands National Seashore in the panhandle of Florida. A FY 2016 

inventory shows 1,063 miles of certified FNST on the ground, leaving just under 300 miles in gaps. 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. With the cooperation of State Highway 

Department and County Commissioners in the states of Oregon, Washington, Idaho, Wyoming, and Montana, over 

2,991 miles of Federal, State, and county roads are designated as the NPNHT Auto Tour Route. The route roughly 

parallels the course travelled by the five Nez Perce bands during their historic 1877 odyssey, beginning near Wallowa 

Lake, Oregon, and ending at Bear Paw Mountains south of Chinook, Montana. National designation protects the actual 

historic trail to foot and equestrian travel only. The diversity of this trail lies in the details, where low level roads 

overlay the historic trail, and opportunities for off-highway vehicles, biking and snowmobile use exists. National 

Historic Trails also are required to have historic sites and high potential segments. The NPNHT currently has 79 

historic sites to be managed and 7 high potential segments which have historic tread from 1877 or were prehistoric 

travel routes. The NPNHT is currently revising its Comprehensive Plan for trail administration and management. The 

NPNHT is also in the process of completing the national trail right-of-way required under 16 U.S.C. 1246(a)(2). 

Pacific Crest National Scenic Trail (PCT)

The PCT is a 2,659-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 within publicly owned lands except for approximately 300 miles where 

it crosses private lands (easements have been acquired for the trail tread). There are 25 National Forests; seven Bureau 

of Land Management field offices; six National Park units; five National Monuments and 48 designated wilderness 

areas. Over half of the PCT is in designated wilderness, which provides continued undeveloped open space and 

landscape-scale connections for wildlife, citizens, and communities. 

Pacific Northwest National Scenic Trail (PNNST)

The Pacific Northwest National Scenic Trail (PNNST) is a unique pathway that travels through some of the most 

spectacular and scenic terrain in the United States, connecting diverse landscapes and communities of the Pacific 

Northwest. The trail begins at the Continental Divide in Glacier National Park and travels 1,200 miles through 

Montana, Idaho, and Washington before reaching the Pacific Ocean near Cape Alava. The PNNST program focuses on 

achieving the Forest Service and Pacific Northwest Region’s goals for Sustainable Recreation as it connects people and 

communities to the natural and cultural history of the Pacific Northwest. The trail’s complex land ownership includes 

three National Parks, seven National Forests, and six Washington State Parks, three regions of the Washington 

Department of Natural Resources, land managed by the Idaho Department of Lands, and lands managed by a variety of 

other public and private owners.

Other National Scenic and Historic Trails (NSHT)

There are an additional 15 national scenic and historic trails totaling over 6,700 miles for which 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.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 236

Funding for National Scenic and Historical Trails

(dollars in thousands)

FY 2016 Enacted

FY 2017 Annualized CR FY 2018 Estimated

Name Trails

Land

Acq.

Subtotal Trails

Land

Acq.

Subtotal Trails

Land 

Acq.

Subtotal

Appalachian 283 825 1,108 283 825 1,108 283 0 1,108

Arizona 495 0 495 495 0 495 495 0 495

Continent

al Divide

1,677 0 1,677 1,677 0 1,677 1,677 0 1,677

Florida 1,300 0 1,300 1,300 0 1,300 1,300 0 1,300

Nez Perce 800 525 1,325 800 525 1,325 800 0 1,325

Pacific Crest 1,829 3,200 5,029 1,829 3,200 5,029 1,829 0 5,029

Pacific

Northwe

st

838 0 838 838 0 838 838 0 838

All-others 702 2,820 3,522 702 2,820 3,522 702 0 3,522

Total $7,924 $7,370 $15,294 $7,924 $7,370 $15,294 $7,924 $0 $15,294

Historical Marker Celebrating History of Florida NST

A permanent marker for the northern terminus of the Florida National Scenic Trail was dedicated 

November 18, 2016 near the trail head at the main parking lot inside Ft. Pickens at Great Islands National 

Seashore. The design is a replica of one of the arches of Fort Pickens and utilizes the same bricks that are

used to repair the fort. Pictured are National Park Service Superintendent Dan Brown, Florida National 

Scenic Trail Program Manager Shawn Thomas, and Florida Trail Association volunteers who were 

instrumental in this process.

FY 2016 Innovative Actions and Accomplishments (by specific Trail)

Appalachian National Scenic Trail (AT)

Partners: Appalachian Trail Conservancy, Appalachian Mountain Club, National Park Service, and other Federal, 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 237

State, and nongovernmental organization.

 Routine Trail Maintenance. The AT was kept safe and enjoyable for visitors along its entire length 

through the Southern Region (approximately 700 miles). Nearly every mile received maintenance

attention, and most received the benefits of multiple work trips. These efforts were primarily

accomplished by 1,367 volunteers who safely contributed 72,496 hours across the region. In the Eastern 

Region, the White Mountain National Forest maintained 169 miles of the AT primarily through 3,135 

hours of volunteer time.

Arizona National Scenic Trail

Partners: Arizona Trail Association (ATA), Federal, State, local government, and nongovernmental organizations.

 A regional interdisciplinary team began documenting existing conditions of the ANST corridor in 

preparation for drafting a comprehensive plan. Through the existing Forest Service cost-share agreement, 

the Arizona Trail Association (ATA) was engaged to assist in the collection of trail use and conditions 

data, including information on facilities, cultural and natural history, and scenery resources.

 Collaboration with American Conservation Experience (ACE) has allowed the ATA to initiate a 

comprehensive trail steward training program implemented through several two-day sessions. ACE is 

sharing their extensive experience in construction and maintenance of trails, teaching stewards

everything from arid lands hydrology and how it relates to trail sustainability, to building rock check 

dams and realigning poorly built trails. The ATA continued their Seeds of Stewardship program, 

providing 30 outings along the ANST for school children from gateway communities along the trail.

Thirty-two major ATA volunteer projects took place trail-wide including gate installation, sign and kiosk 

fabrication and installation, and trail maintenance and realignment. The Forest Service partnered with

youth corps on 11 maintenance and realignment projects trail-wide.

Continental Divide National Scenic Trail (CDT)

Partners: Continental Divide Trail Coalition, Montana Wilderness Association, Colorado Trail Foundation,

Volunteers for Outdoor Colorado, Montana Conservation Corps, Rocky Mountain Youth Corps, Conservation

Legacy, Backcountry Horsemen and numerous other Federal, State, and local nongovernmental organizations.

 Worked collaboratively with Forest Service personnel and CDT partners to develop multi-regional 

guidance to assist CDT revision forests when undergoing forest plan revision. This guidance will result in 

increased efficiency for revision forests and improved management of this long-distance, multijurisdictional trail.

 Implemented an inter-agency and multi-regional Memorandum of Understanding between land 

management agencies to clarify roles and responsibilities in managing portions of the trail in southern 

Montana and Idaho. This document will result in improved efficiency and effectiveness in managing the 

trail. 

 Aided by Land and Water Conservation Fund (LWCF) appropriations and the Rocky Mountain Elk 

Foundation, the Bureau of Land Management acquired 5,200 acres of critical lands between Grants and 

Pie Town, New Mexico. This purchase protects riparian and elk habitat, provides for permanent public 

access, and is the first, crucial step to being able to close the largest gap (a 50-mile road walk) along the 

CDT. 

 The Forest Service, in partnership with the Trust for Public Land, purchased 600 acres within the Bear 

Creek watershed near Silver City, New Mexico thanks to LWCF funding. This property has significant 

ecological and water resource values. This purchase provides for permanent public access to this area and 

protects one mile of the CDT corridor that was at risk of being developed.

 CDT designated an additional four Gateway Communities in 2016: Grants, New Mexico, Pinedale and 

Rawlins, Wyoming, and Salmon, Idaho. A full-time AmeriCorps Vista member continued to expand the 

Gateway Community Program and initiated and supported numerous community events along the trail. 

 CDT continued to expand the Trail Adopter Program across the CDT, completing several adopter 

trainings and ten volunteer work projects along the trail.

 CDT produced a “20 Best Hikes of the CDT in Colorado” publication in partnership with the Colorado 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 238

Mountain Club.

 Developed and piloted a rapid trail condition assessment tool to be fully implemented along the trail in 

FY 2017. The information provided by this assessment will enable us to direct trail funding to the highest 

and best uses along the trail. 

Florida National Scenic Trail (FNST)

Partners: Florida Trail Association, USDI National Park Service, U.S. Fish and Wildlife Service, Florida Forest 

Service, Florida State Parks, and other Federal, State, and nongovernmental organizations.

 Trail Maintenance and Development: Volunteers maintained 100 percent of the FNST for a total of more 

than 23,000 hours. Completed Optimal Corridor Review for 132 miles of Trail. Added over 20 miles of 

designated trail.

 Infrastructure Development: Successful completed two 250 span boardwalks and 1 bridge closing over 

20 miles of gaps in the Florida Trail utilizing 2 non-profit partners, Federal, and State agency partners. 

 Cultural and Outreach: Established interpretive kiosks and a northern terminus marker at Gulf Islands 

National Seashore in collaboration with National Park Service. Designated state historical marker at 50th 

anniversary site of 1st blaze of FNST at Ocala National Forest.



Youth and future leader engagement created curriculum based trail guide for 3 – 5th grade students. Hosted a graduate 

intern focused on planning and promotion of the Florida Trail for all of FY 2016. Supported partner in alternative 

break, school group, and internship opportunities along trail.

Nez Perce National Historic Trail (NPNHT, or Nee-Mee-Poo)

Partners: The Nez Perce Trail Foundation, Nez Perce Appaloosa Horse Club, the Idaho Chapter of the Lewis and 

Clark Trail Heritage Foundation, the Wallowa Band Nez Perce Trail Interpretive Center, the Bitter Root Cultural 

Heritage Trust, Eastern Oregon University, and Montana Natural History Center.

 In 2016, NPNHT staff and Comprehensive Plan Coordinator met with officials from the States of Idaho Oregon 

and Washington. Chapters one and two for the revised Comprehensive Plan (CP) are undergoing internal review 

by numerous staffs in the Washington Office of the U.S. Forest Service. This is very important because it will be 

the first Forest Service revised National Trail CP that will fully meet the requirements of the National Trails 

System Act. In addition, the Comprehensive Plan Interdisciplinary Team has been hired to complete the Trail’s 

Existing Condition report. Staff are anticipating a draft CP by the fall of 2017. 

 The National Forest units along the NPNHT are verifying the Trail’s centerline. The Bureau of Land Management, 

National Park Service, and U.S. Fish and Wildlife Service began reviewing the maps in the fall of 2016. On 

federal lands there will be some type of a designated trail centerline. There will be three types of lines on the maps; 

Completing Boardwalks and a Bridge on the Florida National Scenic Trail

 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 239

the Trail in the location that Congress intended, areas where the Trail is on roads (show as an interim Trail until 

the Trail can be relocated onto existing Trails or a Trail built), and a proposed Trail will be shown where the 

historical evidences show the Flight passed but no Trail tread exists at this time. 

 We will continue to promote the NPNHT through educators, social media, including through Flickr, Twitter, 

videos on You Tube, webcams, and collaboration with our partners to post information about us on Facebook 

reaching thousands of visitors. We have 1,300 Followers on Twitter @npnht. The NPNHT website saw more than 

100,000 visits last year. The NPNHT video “Landscape of History” has been viewed more than 20,000 times, this 

makes it one of the top 15 videos viewed on the USDA YouTube channel.

Pacific Crest National Scenic Trail (PCT)

Partners: Pacific Crest Trail Association, American Conservation Experience, California Conservation Corps, Student 

Conservation Association, Oregon Equestrian Trails, Backcountry Horsemen of California, Oregon, Washington, and 

other Federal, State, and nongovernmental organizations.

Ecological Restoration and Sustainability

 Trail maintenance and construction efforts were focused in areas where fire and floods have closed the 

PCT. Youth Corps and volunteer restoration work on the San Bernardino NF (Mountain Fire), BLM 

Ridgecrest Office and Angeles NF (Fall 2015 Emergency Relief for Federally Owned roads-Mudslide 

Event), and Angeles National Forest (Powerhouse Fire).

 Developed Visitor Use Management Strategies for increased use on the PCT. 

 Our Crest Runner Program (Cleveland NF and BLM Palm Springs and El Centro Field Offices) taught 

Leave No Trace and monitored impacts the first 110 miles of the trail.

 Partnered with researchers on recreation impacts monitoring and management. 

 Facilitated discussions with federal agencies which administer lands that the John Muir Trail crosses (210 

miles of the PCT) to ensure that wilderness resource concerns are discussed and permit management 

issues are considered.

Prioritize and support Land Acquisition along the PCT Corridor (Conserve Open Space)

 Land acquisition program continues with partners and federal agencies to protect the trail. We signed 

options signed and acquired lands 2,612 acres in Washington and California with federal and partner 

funding.

Federal Planning Efforts to Define and Protect the PCT Corridor

 We released Draft Forest Land and Resource Management Plans for the Inyo, Sequoia and Sierra 

National Forests with direction for the Pacific Crest NST. The plans include desired conditions, 

objectives, standards and guidelines and define the trail corridor. 

Fostering citizen stewardship, volunteer opportunities, and youth engagement

 Work is coordinated through a Service First Agreement to support a wide variety of youth and diverse

partners on national forest and BLM lands. This seamless partnership allows for longer continuous 

employment of the crews and leaders, increases the skill level of the team, and allows for administrative 

flexibility.

Pacific Northwest National Scenic Trail

Partners: Pacific Northwest Trail Association (PNTA), National Park Service, Bureau of Land Manager, Washington 

Department of Natural Resources, Washington State Parks, Idaho Department of Lands, Tribal governments, many 

county and municipal governments and agencies along the length of the trail.

 Twenty-eight members of the Pacific Northwest National Scenic Trail Advisory Council (PNNST) were 

approved by the Secretary of Agriculture in 2015. This public-private collaborative group has met three 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 240

times and provides advice and recommendations on future management and administration of the PNNST 

to the Secretary of Agriculture through the Chief of the Forest Service. The Advisory Council has also 

established several regionally-based subcommittees to improve community engagement in the PNNST 

comprehensive planning process.

 The Pacific Northwest Trail Association (PNTA) fielded more than 15 trail crews along the PNNST and 

constructed, improved, or maintained more than 325 miles of trail.

 This year, several volunteer groups including the Student Conservation Association, Back Country 

Horsemen, Washington Trails Association, and Pacific Northwest Trail Association were prepared to 

work on trails in the Sullivan Ranger District of Colville National Forest, but the Forest lacked staff 

capacity to manage these efforts. To fill this need, the Pacific Northwest Trail Association provided 

support for volunteer coordination, and managed the efforts of all four organizations for the course of the 

season. This support, and the collaboration between volunteer groups that resulted from PNTA 

leadership, led to a very successful and productive volunteer season on the Colville. The trail 

maintenance organizations involved reported that they were able to accomplish more together than they 

would have individually, and their cooperation was responsible for nearly all of the trail maintenance 

completed in the Sullivan Ranger District this year.

FY 2016 Partner Contributions and Associated Accomplishments

Location

Volunteers

Hours In-kind

Contributions

Non-Cash

Contributions

Miles of

Trail

Maintained

Miles of

Trail

Improved

Acres

Acquired

Major

Structures

Constructed

Appalachian 75,631 $0 $0 868 0 0 0

Arizona 12,981 0 0 82 1 0 1

Continental

Divide

35,000 0 0 950 50 5,825 134

Florida 23,442 540,807 0 13 40 0 18

Nez Perce 13,000 35,000 12,000 90 109 0 0

Pacific Crest 92,100 2,169,876 438,724 1,854 30 2612.1 3

Pacific 

Northwest

west

11,490 1,413 0 329 90 0 5

Other** (known) 0 228

Total 263,644 $2,747,096 $450,724 4,186 320 8,655 161

**Acres Acquired – Other, includes: Trail of Tears NHT, Cherokee National Forest (222 acres) and Bonneville Shoreline Trail in

 the Uinta-Wasatch-Cache NF in Utah (6 acres).
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 241

Office of General Counsel Reimbursement

Background

This special exhibit is required by P.L. 110-161, page 121, Administrative Provisions, which directed:

“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.”

Overview

The USDA Office of General Counsel bills the Forest Service quarterly for non-litigation travel and related costs. The 

FY 2016 actual reimbursement in the table below reflects billings received to date.

Office of General Counsel Reimbursement FY 2016 to FY 2018

FY 2016 Actual

Reimbursement

FY 2017 Estimated

Reimbursement

FY 2018 Planned

Reimbursement

$13,000 $25,000 $25,000
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 242

Region, Station, and Area Allocations

Background 

This exhibit is not required by Congressional direction; however, it is included to provide historical information on 

allocations of appropriations at the Fund and Budget Line Item levels to Forest Service Regions, Stations and Areas.

Overview

The Office of Management and Budget apportions all funds available to the Forest Service prior to obligation or 

disbursement. Once funds are apportioned to the Forest Service at the fund level, they are allocated throughout the 

agency to Budget Line Items in the Regions, Stations, and Areas. 

The Forest Service operates through nine geographical regions, seven research stations, the Northeastern Area - State 

and Private Forestry, the Albuquerque Service Center in Albuquerque, New Mexico, and the national headquarters in 

Washington, DC. Allocations are determined by balancing the priorities of Congress, the Administration, agency 

leadership, and Region/Station/Area capabilities. They act as agency administrative divisions of apportionments and 

are used to monitor financial status and prevent deficiency.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 243

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $ 0 $ 0 $ 0 $86 $42 $40

State & Private Forestry

Forest Health Management - Federal Lands $3,685 $3,956 $3,867 $3,307 $3,709 $3,447

Forest Health Management - Cooperative Lands 1,870 1,382 1,085 3,077 2,137 1,992

Forest Stewardship 581 574 594 1,118 1,149 1,186

Forest Legacy Program 5,441 15,424 10,038 320 344 338

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 746 771 759 1,751 1,784 1,806

Landscape Scale Restoration 0 475 0 0 1,870 7

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $12,323 $22,582 $16,343 $9,573 $10,993 $8,777

National Forest System

Collaborative Forest Landscape Restoration $6,166 $5,534 $5,345 $3,368 $3,167 $2,964

Land Management Planning 3,322 4,028 3,496 1,766 2,033 1,661

Inventory and Monitoring 11,268 10,913 10,412 9,483 9,365 8,947

Recreation, Heritage, and Wilderness 15,529 17,215 15,008 24,015 24,271 23,921

Wildlife and Fisheries Habitat Management 0 0 0 9,938 10,140 9,538

Grazing Management 6,270 6,389 6,451 8,945 8,811 9,037

Forest Products 0 0 0 30,217 29,598 30,823

Vegetation and Watershed Management 0 0 0 14,217 14,139 12,920

Minerals and Geology Management 9,856 8,431 8,726 8,386 8,546 8,592

Landownership Management 5,786 6,101 5,700 6,533 6,959 7,120

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Restoration Partnerships 69,274 77,604 72,697 0 0 0

Integrated Resource Restoration 0 0

Total National Forest System $127,471 $136,215 $127,836 $116,867 $117,030 $115,523

Wildland Fire Management

Fire Preparedness $62,146 $62,434 $62,827 $30,713 $31,330 $30,418

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 14,043 14,668 16,197 23,832 23,942 25,924

Fire Research and Development (NFP) 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Coop Fire Protection-State Fire Assistance 2,059 5,242 6,604 3,441 8,411 6,502

Coop Fire Protection-Volunteer Fire Assistance 933 778 823 1,323 1,160 1,398

Total Wildland Fire Management $79,181 $83,122 $86,451 $59,309 $64,843 $64,242

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Capital Improvement & Maintenance

Facilities $3,672 $4,853 $3,459 $6,898 $5,985 $5,566

Roads 14,721 14,471 14,909 15,864 16,629 17,438

Trails 10,656 11,126 10,147 8,040 8,396 7,997

Infrastructure Improvement 1,009 0 0 280 0 0

Legacy Roads and Trails 0 0 0 2,782 3,165 2,986

Total Capital Improvement & Maintenance $30,058 $30,449 $28,515 $33,864 $34,175 $33,987

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $797 $2,634 $671 $485 $526 $700

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $797 $2,634 $671 $485 $526 $700

Range Betterment Fund $ 0 $261 $ 0 $ 0 $481 $ 0

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Management of NF Lands for Subsistence Uses $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $249,830 $275,264 $259,816 $220,183 $228,089 $223,269

Permanent Working Funds $14,858 $16,632 $16,212 $12,011 $13,913 $13,820

Trust Funds $11,861 $12,263 $12,333 $11,230 $11,369 $11,434

TOTAL ALL FUNDS $276,550 $304,159 $288,361 $243,425 $253,371 $248,524

(dollars in thousands)

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016

Region 1 - Northern Region Region 2 - Rocky Mountain Region
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 244

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $12 $ 1 $ 0 $ 0 $ 1 $ 0

State & Private Forestry

Forest Health Management - Federal Lands $1,620 $1,866 $1,852 $3,055 $3,133 $3,173

Forest Health Management - Cooperative Lands 1,075 1,090 903 1,365 1,172 831

Forest Stewardship 521 521 520 398 406 407

Forest Legacy Program 3,117 2,551 156 180 2,659 2,804

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 724 722 730 671 686 680

Landscape Scale Restoration 0 300 0 0 1,045 0

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $7,059 $7,049 $4,161 $5,669 $9,102 $7,895

National Forest System

Collaborative Forest Landscape Restoration $6,136 $4,849 $5,780 $2,691 $2,635 $2,541

Land Management Planning 3,939 4,412 5,058 1,472 1,322 1,345

Inventory and Monitoring 10,648 10,288 8,693 11,314 11,719 11,763

Recreation, Heritage, and Wilderness 22,703 22,945 21,447 25,142 25,521 24,819

Wildlife and Fisheries Habitat Management 0 0 8 0 0 0

Grazing Management 10,274 10,137 10,024 10,530 10,483 10,347

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 0 0 0 0 0 0

Minerals and Geology Management 7,572 6,622 6,627 9,716 9,790 9,693

Landownership Management 4,995 5,093 5,060 6,416 6,478 6,207

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Restoration Partnerships 46,186 55,310 53,412 51,209 54,631 56,966

Integrated Resource Restoration 0 0

Total National Forest System $112,452 $119,655 $116,109 $118,491 $122,579 $123,682

Wildland Fire Management

Fire Preparedness $66,118 $66,856 $65,752 $59,337 $59,838 $63,160

Fire Operations -- Suppression 0 0 0 0 1,284 1,284

Hazardous Fuels 26,545 26,528 39,613 20,409 20,558 22,698

Fire Research and Development (NFP) 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Coop Fire Protection-State Fire Assistance 962 2,419 3,107 977 2,810 3,355

Coop Fire Protection-Volunteer Fire Assistance 605 808 766 364 293 293

Total Wildland Fire Management $94,230 $96,610 $109,238 $81,088 $84,783 $90,789

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Capital Improvement & Maintenance

Facilities $5,061 $6,268 $4,966 $4,982 $5,131 $5,245

Roads 14,728 15,107 16,026 15,403 16,749 14,625

Trails 3,790 4,161 4,263 7,695 8,206 8,035

Infrastructure Improvement 511 343 0 0 80 0

Legacy Roads and Trails 0 0 0 0 0 0

Total Capital Improvement & Maintenance $24,090 $25,879 $25,254 $28,080 $30,167 $27,905

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $219 $282 $286 $616 $614 $632

Acquisition of Lands for National Forests, Special Acts 0 0 0 46 475 317

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $219 $282 $286 $662 $1,089 $949

Range Betterment Fund $ 0 $677 $ 0 $ 0 $759 $ 0

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Management of NF Lands for Subsistence Uses $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $238,062 $250,154 $255,048 $233,989 $248,479 $251,219

Permanent Working Funds $13,402 $11,894 $11,867 $35,012 $26,132 $26,043

Trust Funds $3,651 $3,704 $3,712 $5,869 $5,907 $6,028

TOTAL ALL FUNDS $255,115 $265,752 $270,627 $274,870 $280,518 $283,291

Region 4 - Intermountain Region

(dollars in thousands)

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016

Region 3 - Southwestern Region
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 245

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $ 0 $ 0 $ 0 $88 $88 $107

State & Private Forestry

Forest Health Management - Federal Lands $3,567 $3,911 $3,905 $6,387 $6,487 $6,401

Forest Health Management - Cooperative Lands 2,683 2,401 1,873 2,989 2,773 2,486

Forest Stewardship 1,063 1,055 1,073 714 736 752

Forest Legacy Program 4,587 1,457 3,311 7,252 4,281 7,495

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 2,572 2,423 2,757 815 809 791

Landscape Scale Restoration 0 75 0 0 600 40

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $14,472 $11,321 $12,919 $18,157 $15,686 $17,966

National Forest System

Collaborative Forest Landscape Restoration $3,201 $2,429 $2,808 $7,947 $7,237 $7,830

Land Management Planning 3,362 2,980 2,890 4,029 3,596 3,116

Inventory and Monitoring 11,680 12,421 11,883 12,452 12,853 12,607

Recreation, Heritage, and Wilderness 26,307 26,740 25,683 26,559 26,867 25,425

Wildlife and Fisheries Habitat Management 14,142 13,517 13,565 17,393 17,608 18,465

Grazing Management 3,668 3,737 3,695 4,643 4,617 4,725

Forest Products 42,397 33,736 33,841 60,087 59,693 60,548

Vegetation and Watershed Management 18,485 17,368 15,058 24,316 24,270 22,370

Minerals and Geology Management 4,999 5,704 4,953 4,523 4,320 4,558

Landownership Management 8,142 8,184 7,636 7,048 6,850 6,842

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Restoration Partnerships 0 0 0 0 0 0

Integrated Resource Restoration 0 0

Total National Forest System $136,384 $126,815 $122,011 $168,998 $167,911 $166,485

Wildland Fire Management

Fire Preparedness $248,593 $250,106 $247,520 $83,996 $85,464 $83,148

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 51,128 50,732 51,595 29,442 31,856 33,405

Fire Research and Development (NFP) 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Coop Fire Protection-State Fire Assistance 6,887 7,647 6,943 5,251 7,569 5,217

Coop Fire Protection-Volunteer Fire Assistance 1,075 1,081 1,016 745 920 921

Total Wildland Fire Management $307,683 $309,566 $307,074 $119,434 $125,809 $122,692

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Capital Improvement & Maintenance

Facilities $6,192 $6,346 $7,136 $5,625 $5,845 $6,398

Roads 16,148 16,435 15,806 21,887 21,408 21,281

Trails 6,533 6,933 6,872 7,101 8,007 7,749

Infrastructure Improvement 0 2,078 925 0 0 450

Legacy Roads and Trails 4,914 5,501 5,255 6,429 7,040 6,762

Total Capital Improvement & Maintenance $33,787 $37,294 $35,994 $41,043 $42,300 $42,640

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $687 $826 $986 $687 $668 $766

Acquisition of Lands for National Forests, Special Acts 866 475 317 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $1,553 $1,301 $1,303 $687 $668 $766

Range Betterment Fund $ 0 $129 $ 0 $ 0 $229 $ 0

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Management of NF Lands for Subsistence Uses $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $493,879 $486,426 $479,302 $348,406 $352,691 $350,657

Permanent Working Funds $42,133 $59,361 $59,063 $46,536 $37,895 $37,959

Trust Funds $52,635 $52,604 $52,579 $35,902 $33,290 $33,071

TOTAL ALL FUNDS $588,647 $598,391 $590,943 $430,844 $423,875 $421,688

(dollars in thousands)

Region 5 - Pacific Southwest Region Region 6 - Pacific Northwest Region

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 246

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $125 $126 $133 $ 0 $ 1 $ 0

State & Private Forestry

Forest Health Management - Federal Lands $7,600 $8,315 $7,698 $23 $25 $13

Forest Health Management - Cooperative Lands 8,278 7,836 7,260 0 0 0

Forest Stewardship 5,116 5,315 5,396 0 0 0

Forest Legacy Program 5,789 8,476 15,990 0 0 0

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 5,821 5,705 5,610 0 0 0

Landscape Scale Restoration 0 4,587 60 0 0 0

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $32,604 $40,233 $42,015 $23 $25 $13

National Forest System

Collaborative Forest Landscape Restoration $6,259 $7,159 $5,758 $917 $851 $951

Land Management Planning 3,903 3,188 3,038 1,484 1,413 1,306

Inventory and Monitoring 9,613 9,936 9,429 9,530 9,793 9,302

Recreation, Heritage, and Wilderness 27,664 28,185 25,545 22,025 23,395 22,947

Wildlife and Fisheries Habitat Management 19,190 19,800 18,856 16,277 16,544 16,548

Grazing Management 618 631 727 596 618 637

Forest Products 33,911 35,405 36,001 40,990 41,142 43,951

Vegetation and Watershed Management 16,004 17,328 16,651 17,586 19,291 21,170

Minerals and Geology Management 4,884 4,541 4,428 5,780 5,635 5,432

Landownership Management 7,612 7,901 7,723 7,502 7,725 7,506

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Restoration Partnerships 0 0 0 0 0 0

Integrated Resource Restoration 0 0

Total National Forest System $129,660 $134,074 $128,157 $122,687 $126,406 $129,750

Wildland Fire Management

Fire Preparedness $38,416 $39,048 $39,022 $24,472 $24,611 $25,181

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 39,523 41,656 40,719 12,020 12,524 12,972

Fire Research and Development (NFP) 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Coop Fire Protection-State Fire Assistance 16,737 17,202 17,200 75 75 75

Coop Fire Protection-Volunteer Fire Assistance 3,411 3,730 3,689 0 0 0

Total Wildland Fire Management $98,088 $101,636 $100,630 $36,567 $37,210 $38,227

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Capital Improvement & Maintenance

Facilities $7,970 $8,117 $7,642 $8,354 $6,038 $5,267

Roads 17,713 18,037 19,038 14,031 14,417 17,095

Trails 7,542 8,133 7,924 6,481 6,882 6,337

Infrastructure Improvement 700 586 0 437 0 0

Legacy Roads and Trails 3,612 4,012 3,930 2,617 2,936 3,160

Total Capital Improvement & Maintenance $37,537 $38,885 $38,533 $31,920 $30,274 $31,858

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $1,119 $1,112 $1,224 $1,255 $1,350 $1,672

Acquisition of Lands for National Forests, Special Acts 0 0 316 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $1,119 $1,112 $1,540 $1,255 $1,350 $1,672

Range Betterment Fund $ 0 $ 1 $ 0 $ 0 $ 0 $ 0

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Management of NF Lands for Subsistence Uses $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $299,133 $316,067 $311,008 $192,452 $195,266 $201,521

Permanent Working Funds $30,629 $27,281 $27,089 $22,240 $22,700 $22,547

Trust Funds $56,340 $40,072 $39,395 $16,733 $17,437 $17,436

TOTAL ALL FUNDS $386,103 $383,420 $377,491 $231,425 $235,403 $241,503

(dollars in thousands)

Region 8 - Southern Regions Region 9 - Eastern Region

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 247

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

Region 10 - Alaska Region

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $47 $82 $60 $19,722 $20,228 $26,340

State & Private Forestry

Forest Health Management - Federal Lands $1,569 $2,091 $1,814 $0 $0 $0

Forest Health Management - Cooperative Lands 2,305 1,491 1,509 0 0 0

Forest Stewardship 538 554 543 0 0 0

Forest Legacy Program 60 47 56 0 0 0

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 248 252 244 0 0 0

Landscape Scale Restoration 0 135 0 0 0 0

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $4,720 $4,570 $4,166 $ 0 $ 0 $ 0

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $0 $0 $0 $0

Land Management Planning 977 1,117 1,370 0 0 0

Inventory and Monitoring 6,314 6,697 6,646 0 0 0

Recreation, Heritage, and Wilderness 9,414 10,721 10,349 0 0 0

Wildlife and Fisheries Habitat Management 10,504 10,595 9,448 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 17,927 18,053 18,005 0 0 0

Vegetation and Watershed Management 5,327 5,004 5,291 0 0 0

Minerals and Geology Management 3,159 3,325 3,326 0 0 0

Landownership Management 4,098 4,336 4,333 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Restoration Partnerships 0 0 0 0 0 0

Integrated Resource Restoration 0 0

Total National Forest System $57,720 $59,849 $58,769 $ 0 $ 0 $ 0

Wildland Fire Management

Fire Preparedness $2,946 $2,914 $3,038 $0 $0 $0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 999 976 1,048 650 650 902

Fire Research and Development (NFP) 0 0 0 651 651 651

Joint Fire Sciences 0 0 0 0 0 0

Coop Fire Protection-State Fire Assistance 1,075 1,940 1,150 0 0 0

Coop Fire Protection-Volunteer Fire Assistance 372 111 105 0 0 0

Total Wildland Fire Management $5,392 $5,942 $5,341 $1,301 $1,301 $1,553

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Capital Improvement & Maintenance

Facilities $4,845 $6,267 $5,767 $1,165 $1,291 $35

Roads 7,642 10,052 8,698 0 0 0

Trails 4,255 4,503 4,478 0 0 0

Infrastructure Improvement 0 0 0 0 0 0

Legacy Roads and Trails 478 540 563 0 0 0

Total Capital Improvement & Maintenance $17,220 $21,363 $19,507 $1,165 $1,291 $35

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $131 $178 $177 $0 $0 $0

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $131 $178 $177 $ 0 $ 0 $ 0

Range Betterment Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $25 $15 $ 0

Management of NF Lands for Subsistence Uses $2,076 $2,500 $2,500 $ 0 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $87,306 $94,484 $90,520 $22,213 $22,835 $27,928

Permanent Working Funds $7,205 $6,572 $6,411 $ 0 $ 0 $ 0

Trust Funds $6,062 $5,155 $5,181 $450 $450 $450

TOTAL ALL FUNDS $100,572 $106,211 $102,112 $22,663 $23,285 $28,378

(dollars in thousands)

Forest Products Lab

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 248

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $40,725 $41,877 $38,472 $54,621 $55,027 $51,140

State & Private Forestry

Forest Health Management - Federal Lands $0 $186 $499 $80 $35 $20

Forest Health Management - Cooperative Lands 946 1,988 0 112 70 65

Forest Stewardship 182 252 189 0 0 0

Forest Legacy Program 0 0 0 85 65 65

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 0 0 0 25 25 25

Landscape Scale Restoration 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $1,128 $2,426 $688 $302 $195 $175

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $0 $0 $0 $0

Land Management Planning 0 23 0 0 0 0

Inventory and Monitoring 0 45 0 0 0 0

Recreation, Heritage, and Wilderness 29 245 0 26 26 55

Wildlife and Fisheries Habitat Management 0 315 265 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 265 264 0 0 0

Vegetation and Watershed Management 42 307 306 0 0 0

Minerals and Geology Management 0 54 0 0 0 0

Landownership Management 0 36 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Restoration Partnerships 0 0 0 0 0 0

Integrated Resource Restoration 0 0

Total National Forest System $71 $1,290 $836 $26 $26 $55

Wildland Fire Management

Fire Preparedness $937 $3,194 $2,559 $0 $0 $0

Fire Operations -- Suppression 0 1,266 1,266 0 0 0

Hazardous Fuels 1,045 1,589 2,901 48 57 57

Fire Research and Development (NFP) 6,911 6,746 6,606 2,944 2,944 2,944

Joint Fire Sciences 0 0 0 0 0 0

Coop Fire Protection-State Fire Assistance 0 99 99 0 0 0

Coop Fire Protection-Volunteer Fire Assistance 0 0 0 0 0 0

Total Wildland Fire Management $8,893 $12,894 $13,431 $2,992 $3,001 $3,001

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Capital Improvement & Maintenance

Facilities $985 $438 $2,219 $506 $708 $25

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 0 0 0 0 0 0

Legacy Roads and Trails 0 0 0 0 0 0

Total Capital Improvement & Maintenance $985 $438 $2,219 $506 $708 $25

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $0 $0 $0 $0 $0 $0

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Range Betterment Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Management of NF Lands for Subsistence Uses $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $51,802 $58,924 $55,645 $58,447 $58,957 $54,396

Permanent Working Funds $100 $100 $100 $ 5 $ 5 $ 5

Trust Funds $700 $700 $700 $500 $500 $500

TOTAL ALL FUNDS $52,602 $59,724 $56,445 $58,952 $59,462 $54,901

(dollars in thousands)

Rocky Mountain Research Station Northern Research Station

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 249

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $40,287 $40,546 $40,385 $20,090 $19,746 $17,407

State & Private Forestry

Forest Health Management - Federal Lands $349 $171 $294 $49 $35 $0

Forest Health Management - Cooperative Lands 312 588 294 50 50 47

Forest Stewardship 0 0 0 0 49 49

Forest Legacy Program 0 0 0 0 24 24

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 0 0 0 0 24 24

Landscape Scale Restoration 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $661 $759 $588 $99 $182 $144

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $0 $0 $0 $0

Land Management Planning 0 0 0 0 32 32

Inventory and Monitoring 452 912 642 0 0 0

Recreation, Heritage, and Wilderness 0 0 0 0 46 0

Wildlife and Fisheries Habitat Management 0 0 0 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 151 0 181 0 27 27

Minerals and Geology Management 0 0 14 0 0 0

Landownership Management 0 0 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Restoration Partnerships 0 0 0 0 0 0

Integrated Resource Restoration 0 0

Total National Forest System $603 $912 $836 $ 0 $105 $59

Wildland Fire Management

Fire Preparedness $0 $0 $54 $0 $0 $0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 239 114 382 0 0 0

Fire Research and Development (NFP) 4,082 4,082 4,082 2,690 2,690 2,690

Joint Fire Sciences 0 0 0 0 0 0

Coop Fire Protection-State Fire Assistance 0 0 0 0 24 24

Coop Fire Protection-Volunteer Fire Assistance 0 0 0 0 0 0

Total Wildland Fire Management $4,321 $4,196 $4,518 $2,690 $2,714 $2,714

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Capital Improvement & Maintenance

Facilities $830 $228 $2,140 $689 $1,070 $26

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 0 0 1,712 0 0 0

Legacy Roads and Trails 0 0 0 0 0 0

Total Capital Improvement & Maintenance $830 $228 $3,852 $689 $1,070 $26

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $0 $0 $0 $0 $0 $0

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Range Betterment Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Management of NF Lands for Subsistence Uses $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $46,702 $46,641 $50,179 $23,568 $23,817 $20,351

Permanent Working Funds $35 $32 $32 $1,120 $220 $220

Trust Funds $500 $500 $500 $1,051 $790 $790

TOTAL ALL FUNDS $47,237 $47,173 $50,711 $25,739 $24,827 $21,361

(dollars in thousands)

Pacific Northwest Research Station Pacific Southwest Research Station

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 250

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $48,278 $48,187 $46,505 $3,582 $3,829 $3,714

State & Private Forestry

Forest Health Management - Federal Lands $322 $454 $443 $180 $25 $18

Forest Health Management - Cooperative Lands 513 230 341 258 358 298

Forest Stewardship 0 51 0 387 450 444

Forest Legacy Program 2 22 0 85 92 10

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 0 6 0 416 476 434

Landscape Scale Restoration 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $837 $763 $784 $1,326 $1,401 $1,205

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $0 $0 $0 $0

Land Management Planning 0 0 0 23 44 48

Inventory and Monitoring 452 361 550 0 0 0

Recreation, Heritage, and Wilderness 0 8 0 0 0 0

Wildlife and Fisheries Habitat Management 0 0 0 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 151 361 181 35 128 145

Minerals and Geology Management 0 0 0 0 0 0

Landownership Management 0 0 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Restoration Partnerships 0 0 0 0 0 0

Integrated Resource Restoration 0 0

Total National Forest System $603 $730 $730 $59 $172 $193

Wildland Fire Management

Fire Preparedness $0 $80 $80 $0 $0 $0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 191 325 191 0 0 0

Fire Research and Development (NFP) 2,282 2,282 2,282 100 100 100

Joint Fire Sciences 0 0 0 0 0 0

Coop Fire Protection-State Fire Assistance 0 0 0 433 459 452

Coop Fire Protection-Volunteer Fire Assistance 0 0 0 112 28 28

Total Wildland Fire Management $2,473 $2,687 $2,553 $645 $587 $580

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Capital Improvement & Maintenance

Facilities $39 $670 $664 $129 $31 $25

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 0 0 0 0 0 0

Legacy Roads and Trails 0 0 0 0 0 0

Total Capital Improvement & Maintenance $39 $670 $664 $129 $31 $25

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $0 $0 $0 $0 $0 $0

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Range Betterment Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Management of NF Lands for Subsistence Uses $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $52,230 $53,037 $51,236 $5,741 $6,020 $5,716

Permanent Working Funds $90 $100 $100 $ 0 $ 0 $ 0

Trust Funds $1,005 $405 $405 $ 0 $ 0 $ 0

TOTAL ALL FUNDS $53,325 $53,542 $51,741 $5,741 $6,020 $5,716

(dollars in thousands)

Southern Research Station International Institute of Tropical Forestry

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 251

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $ 0 $ 0 $ 0 $29,438 $29,958 $25,611

State & Private Forestry

Forest Health Management - Federal Lands $10,568 $7,342 $7,476 $4,796 $4,607 $3,501

Forest Health Management - Cooperative Lands 14,967 17,349 13,518 1,664 950 1,856

Forest Stewardship 6,618 6,726 6,683 839 840 811

Forest Legacy Program 21,870 12,449 19,796 488 445 434

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 8,925 9,018 8,933 854 828 836

Landscape Scale Restoration 0 3,427 70 0 0 0

International Forestry 0 0 0 629 613 585

Total State & Private Forestry $62,949 $56,311 $56,474 $9,269 $8,282 $8,023

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $0 $2,313 $3,530 $3,712

Land Management Planning 0 0 0 3,744 3,655 3,494

Inventory and Monitoring 0 0 0 13,707 11,985 10,756

Recreation, Heritage, and Wilderness 0 0 0 35,221 31,673 29,602

Wildlife and Fisheries Habitat Management 0 0 0 9,910 9,809 9,798

Grazing Management 0 0 0 6,082 5,278 5,436

Forest Products 0 0 0 33,413 30,069 33,980

Vegetation and Watershed Management 0 0 0 12,408 12,759 12,417

Minerals and Geology Management 0 0 0 7,066 6,843 6,391

Landownership Management 0 0 0 8,402 7,481 7,214

Law Enforcement Operations 0 0 0 12,919 13,891 12,069

Valles Caldera National Preserve 0 0 0 0 0 0

Restoration Partnerships 0 0 0 0 0 0

Integrated Resource Restoration 0 0

Total National Forest System $ 0 $ 0 $ 0 $145,185 $136,972 $134,869

Wildland Fire Management

Fire Preparedness $0 $0 $0 $100,723 $100,430 $101,925

Fire Operations -- Suppression 0 0 0 58,810 59,596 51,846

Hazardous Fuels 254 255 405 23,852 23,437 21,485

Fire Research and Development (NFP) 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Coop Fire Protection-State Fire Assistance 13,316 13,653 13,283 784 771 766

Coop Fire Protection-Volunteer Fire Assistance 4,085 4,091 3,961 0 0 0

Total Wildland Fire Management $17,655 $17,999 $17,649 $184,170 $184,234 $176,022

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Capital Improvement & Maintenance

Facilities $0 $0 $0 $6,459 $5,534 $5,657

Roads 0 0 0 15,486 14,568 13,532

Trails 0 0 0 8,205 6,922 7,382

Infrastructure Improvement 0 0 0 0 0 0

Legacy Roads and Trails 0 0 0 1,372 1,328 957

Total Capital Improvement & Maintenance $ 0 $ 0 $ 0 $31,521 $28,352 $27,529

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $0 $0 $0 $1,019 $658 $639

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $ 0 $ 0 $ 0 $1,019 $658 $639

Range Betterment Fund $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $ 0 $ 0 $ 0

Management of NF Lands for Subsistence Uses $ 0 $ 0 $ 0 $286 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $80,604 $74,310 $74,123 $400,888 $388,456 $372,693

Permanent Working Funds $42 $846 $46 $3,307 $3,546 $3,430

Trust Funds $ 0 $ 0 $ 0 $6,382 $6,417 $5,573

TOTAL ALL FUNDS $80,646 $75,156 $74,169 $410,577 $398,420 $381,696

Northeastern Area - State & Private Forestry Albuquerque Service Center 

(dollars in thousands)

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 252

Region, Station, and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

FY14 FY15 FY16 FY14 FY15 FY16

Forest and Rangeland Research $22,728 $24,769 $27,397 $12,976 $11,493 $13,689

State & Private Forestry

Forest Health Management - Federal Lands $7,378 $7,632 $7,874 $4,387 $4,943 $6,626

Forest Health Management - Cooperative Lands 1,592 910 1,170 1,598 2,881 5,150

Forest Stewardship 3,161 3,226 3,150 1,163 1,132 1,237

Forest Legacy Program 1,306 1,251 1,189 382 3,413 643

Community Forest & Open Space Conservation 0 0 0 2,000 2,000 2,000

Urban and Community Forestry 2,367 2,558 2,514 2,103 1,955 1,897

Landscape Scale Restoration 0 0 0 14,000 1,486 13,823

International Forestry 7,191 7,208 7,165 180 180 251

Total State & Private Forestry $22,995 $22,786 $23,061 $25,815 $17,989 $31,628

National Forest System

Collaborative Forest Landscape Restoration $468 $696 $909 $533 $1,913 $1,400

Land Management Planning 8,598 8,845 8,409 1,135 1,066 1,735

Inventory and Monitoring 39,310 39,729 41,572 4,796 4,002 4,798

Recreation, Heritage, and Wilderness 18,516 15,492 25,995 8,569 8,369 10,922

Wildlife and Fisheries Habitat Management 7,408 7,208 7,828 4,704 3,570 4,715

Grazing Management 2,084 3,184 3,355 1,647 1,471 2,422

Forest Products 17,622 17,557 23,824 9,567 8,052 13,006

Vegetation and Watershed Management 18,134 17,747 20,897 7,859 5,406 6,593

Minerals and Geology Management 8,482 8,778 8,918 2,001 3,833 4,765

Landownership Management 8,629 8,404 8,779 2,566 2,182 3,610

Law Enforcement Operations 8,024 8,323 7,183 105,710 104,439 107,401

Valles Caldera National Preserve 0 0 0 3,364 3,364 0

Restoration Partnerships 289 600 1,521 3,042 2,176 1,648

Integrated Resource Restoration 0 2,000

Total National Forest System $137,564 $136,565 $159,191 $157,492 $149,844 $163,016

Wildland Fire Management

Fire Preparedness $258,688 $249,590 $292,618 $80,494 $169,944 $65,319

Fire Operations -- Suppression 78,631 94,214 160,768 543,047 551,640 595,836

Hazardous Fuels 13,714 13,110 17,697 24,567 70,697 62,808

Fire Research and Development (NFP) 0 165 25 135 135 415

Joint Fire Sciences 0 0 0 6,914 6,914 6,914

Coop Fire Protection-State Fire Assistance 2,911 2,851 4,792 23,090 6,829 8,431

Coop Fire Protection-Volunteer Fire Assistance 0 0 0 0 0 0

Total Wildland Fire Management $353,944 $359,930 $475,900 $678,247 $806,158 $739,722

FLAME Wildfire Suppression Reserve Fund $ 0 $ 0 $ 0 $315,000 $303,060 $823,000

Capital Improvement & Maintenance

Facilities $3,777 $5,318 $6,173 $2,822 $1,461 $2,981

Roads 5,266 5,918 8,014 7,109 4,302 5,632

Trails 2,526 2,349 3,440 2,177 1,911 2,905

Infrastructure Improvement 63 63 63 0 0 0

Legacy Roads and Trails 387 389 337 409 344 1,307

Total Capital Improvement & Maintenance $12,020 $14,037 $18,027 $12,517 $8,018 $12,826

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $195 $348 $261 $36,315 $38,303 $55,419

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 217 216 216

Total Land Acquisition $195 $348 $261 $36,532 $38,519 $55,635

Range Betterment Fund $ 0 $ 0 $ 0 $3,000 $ 0 $2,320

Gifts, Donations, and Bequests for Research $ 0 $ 0 $ 0 $15 $30 $45

Management of NF Lands for Subsistence Uses $56 $ 0 $ 0 $81 $ 0 $ 0

TOTAL Forest Service (DISCRETIONARY) $549,502 $558,435 $703,839 $1,241,675 $1,335,111 $1,841,881

Permanent Working Funds $18,028 $18,417 $1,567 $1,847 $1,415 $19,752

Trust Funds $2,397 $2,365 $2,507 $2,197 $1,798 $3,130

TOTAL ALL FUNDS $569,927 $579,217 $707,912 $1,245,719 $1,338,324 $1,864,764

National Headquarters in Washington, DC (WO) National

(dollars in thousands)

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 253

Region, Station and Area Allocations FY 2014 to FY 2016

1/ Totals do not include payment to States

2/ Permanent & Trust funds amounts = allocations for current year operations, not total receipts

3/ FLAME, Law Enforcement, and Land Acquisition Funds managed at the National level 

FY14 FY15 FY16

Forest and Rangeland Research $292,805 $296,000 $291,000

State & Private Forestry

Forest Health Management - Federal Lands $58,922 $58,923 $58,922

Forest Health Management - Cooperative Lands 45,655 45,655 $40,678

Forest Stewardship 22,398 23,036 $23,036

Forest Legacy Program 50,965 53,000 $62,347

Community Forest & Open Space Conservation 2,000 2,000 $2,000

Urban and Community Forestry 28,040 28,040 $28,040

Landscape Scale Restoration 14,000 14,000 $14,000

International Forestry 8,000 8,000 $8,000

Total State & Private Forestry $229,980 $232,654 $237,024

National Forest System

Collaborative Forest Landscape Restoration $40,000 $40,000 $40,000

Land Management Planning 37,754 37,754 36,998

Inventory and Monitoring 151,019 151,019 147,998

Recreation, Heritage, and Wilderness 261,719 261,720 261,719

Wildlife and Fisheries Habitat Management 109,466 109,106 109,035

Grazing Management 55,356 55,356 56,856

Forest Products 286,130 273,570 294,245

Vegetation and Watershed Management 134,716 134,135 134,206

Minerals and Geology Management 76,423 76,423 76,423

Landownership Management 77,730 77,730 77,730

Law Enforcement Operations 126,653 126,653 126,653

Valles Caldera National Preserve 3,364 3,364 0

Restoration Partnerships 170,000 190,321 186,244

Integrated Resource Restoration 2,000

Total National Forest System $1,532,330 $1,537,151 $1,548,108

Wildland Fire Management

Fire Preparedness $1,057,580 $1,145,840 $1,082,620

Fire Operations -- Suppression 680,488 708,000 $810,999

Hazardous Fuels 282,500 333,672 $351,000

Fire Research and Development (NFP) 19,795 19,795 $19,795

Joint Fire Sciences 6,914 6,914 $6,914

Coop Fire Protection-State Fire Assistance 78,000 78,000 $78,000

Coop Fire Protection-Volunteer Fire Assistance 13,025 13,000 $13,000

Total Wildland Fire Management $2,138,301 $2,305,222 $2,362,328

FLAME Wildfire Suppression Reserve Fund $315,000 $303,060 $823,000

Capital Improvement & Maintenance

Facilities $71,000 $71,600 $71,390

Roads 166,000 168,094 172,094

Trails 75,000 77,530 77,530

Infrastructure Improvement 3,000 3,150 3,150

Legacy Roads and Trails 23,000 25,257 25,257

Total Capital Improvement & Maintenance $338,000 $345,630 $349,421

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $43,525 $47,499 $63,435

Acquisition of Lands for National Forests, Special Acts 912 950 950

Acquisition of Lands to Complete Land Exchanges 217 216 216

Total Land Acquisition $44,654 $48,665 $64,601

Range Betterment Fund $3,000 $2,537 $2,320

Gifts, Donations, and Bequests for Research $40 $45 $45

Management of NF Lands for Subsistence Uses $2,500 $2,500 $2,500

TOTAL Forest Service (DISCRETIONARY) $4,896,611 $5,073,464 $5,680,346

Permanent Working Funds $248,600 $247,061 $246,262

Trust Funds $215,465 $195,724 $195,725

TOTAL ALL FUNDS $5,360,676 $5,516,249 $6,122,333

FOREST SERVICE TOTAL

(dollars in thousands)

Includes direct program + cost pool funding 

allocated to Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2014 to FY 2016
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 254

Forest Service Research and Development Field Unit Budget Report

Introduction

This report was produced in accordance with the FY 2018 Congressional direction and is information presented with 

the Forest Service’s annual Budget Justification and related briefing materials. The report provides detailed 

information on Forest Service Research and Development (R&D) activities and expenditures undertaken at facilities 

across the country. 

Congressional direction motivating this report. 

“The Service is directed to update the report provided to the House and Senate Committees on Appropriations that 

describes its research program in detail. The report should be transmitted as part of the fiscal year 2018 budget request. 

It should include information on each research laboratory, including their relationship to the research stations, their 

goals and purpose, the funding provided for each of the previous five fiscal years, the funding proposed to be provided 

in fiscal year 2018, the allocation of funding between research and administrative costs, the allocation of funding and 

projects between in-house and extramural research, and the number of scientists and support staff. The report also 

should include similar information for each research station.” --Joint Explanatory Statement, Division G, for the Fiscal 

Year 2016 Consolidated Appropriations Act, H.R. 2029

Forest Service R&D Program Overview and Station Budget Summary

America’s forested ecosystems are a major national strategic asset that provide many social, ecological and economic 

benefits. The Forest Service’s broad and complex portfolios of natural resources and policy issues across public and 

private lands. The foundation of these efforts and decisions are grounded in sound science that is primarily conducted 

by Forest Service R&D. Science-based management is fundamental to restoring, enhancing and sustainably reaping 

ecological, social, environmental benefits from, the Nation’s forests and grasslands. The agency’s Strategic Plan 

identifies four goals: Sustain our Nation’s Forests and Grasslands, Deliver Benefits to the Public, Apply Knowledge 

Globally, and Excel as a High Performing Agency. (Research is aligned with land management efforts undertaken by 

National Forest System and State & Private Forestry.) Sustainable management of the nation’s forests and rangelands 

is at the forefront of contemporary policy and land management decisions today. To effectively inform policy and 

guide actions, science must address complex ecological and human social processes, variability, largescale natural 

disturbances, urbanization, bioenergy, globalization, and the rapid growth of knowledge. Forest Service R&D leads the 

way and provides cutting-edge science in an environment of economic/jobs, ever changing public values, and evolving 

research partnerships. 

Forest Service R&D installations and activities are distributed across the fifty states and Puerto Rico. Field level 

research is administered by a national laboratory, an international institute and five research Stations. The Washington 

office provides national level coordination, assessment and communication. Each station conducts research through 

one or more research work units, whose activities are distributed across their respective regions depending on the 

nature of the research. 

The five stations, one national laboratory, and one international institute are:

 Forest Products Laboratory (FPL). Headquarters in Madison, WI. Focused on wood technology development.

 International Institute of Tropical Forestry (IITF). Headquarters in Río Piedras, Puerto Rico. Focused on 

tropical forestry research.

The following five stations all provide research on a broad range of forestry issues spanning the biological, physical 

and social sciences:

 Northern Research Station (NRS). HQ in Newtown Square, PA 

 Pacific Northwest Research Station (PNW). HQ in Portland, OR

 Pacific Southwest Research Station (PSW). HQ in Albany, CA

 Rocky Mountain Research Station (RMRS). HQ in Fort Collins, CO

 Southern Research Station (SRS). HQ in Asheville, NC
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 255

The stations are funded primarily through the Forest and Rangeland Research appropriation budget line item, with 

additional funding being provided through the Joint Fire Science Program and the National Fire Plan budget line items

(Table 1) below under Wildland Fire Management. Funds arising from inter-agency and intra-agency grants, 

agreements and other instruments may also provide additional funding resources. 

Table 1 Forest Service Research and Development unit allocations by Research Station and fiscal years 

(dollars in thousands)

Station Budget 

Line Item FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 FY 2018

Forest Product 

Laboratory

Research $21,001 $17,816 $19,722 $20,228 $26,320 $26,320 $22,167

Other 5,211 1,901 2,941 3,057 2,058 2,058 1,733

Total 26,212 19,717 22,663 23,285 28,377 28,377 23,900

International Institute 

of Tropical Forestry 

Research 2,393 2,228 2,530 2,691 2,713 2,713 2,285

Other 2,885 2959 ,211 3,329 3,003 3,003 2,529

Total 5,278 5,187 5,741 6,020 5,716 5,716 4,814

Northern Research 

Station

Research 54,484 51,538 54,621 55,027 51,043 51,043 42,988

Other 4,985 5,932 4,331 4,435 3,859 3,859 3,250

Total 59,469 57,470 58,952 59,462 54,902 54,902 46,238

Pacific Northwest 

Research Station

Research 40,258 38,152 40,287 40,546 40,346 40,346 33,979

Other 6,721 9,043 6,950 6,627 10,365 10,365 8,729

Total 46,979 47,195 47,237 47,173 50,711 50,711 42,708

Pacific Southwest 

Research Station

Research 19,674 18,579 20,090 19,746 17,381 17,381 14,638

Other 6,670 4,970 5,649 5,081 3,979 3,979 3,352

Total 26,344 23,549 25,739 24,827 21,361 21,361 17,990

Rocky Mountain 

Research Station

Research 40,500 37,799 40,725 41,877 38,394 38,394 32,335

Other 13,383 15,324 11,877 17,847 18,051 18,051 15,203

Total 53,883 53,123 52,602 59,724 56,445 56,445 47,538

Southern Research 

Station

Research 48,242 45,097 48,278 48,187 46,414 46,414 39,090

Other 8,321 6,234 5,047 5,355 5,327 5,327 4,486

Total 56,563 51,331 53,325 53,542 51,741 51,741 43,576

Grand Total $274,728 $257,572 $266,259 $274,033 $269,253 $269,253 $226,764
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 256

Forest Products Laboratory

The Forest Products Laboratory (FLP) is the Nation’s leading Federal wood utilization research laboratory and serves 

the entire United States. The FLP develops innovative science and technology to conserve, extend and sustainable 

utilize forest resources to improve health, diversity, and productivity of the nation’s forest to meet the needs of current 

and future generations. 

Forest Product Laboratory Field Unit Allocations and

Staffing by Science and Administrative Categories

(dollars in thousands)

Forest Product Laboratory FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Research & Development $17,816 $19,722 $20,228 $26,320 $26,320 $22,167

Other funding* 1,901 2,941 3,057 2,058 2,058 1,733

Total Allocation $19,717 $22,663 $23,285 $28,378 $28,378 $23,900

Staffing by Science and Administrative Categories

Scientists (SY) 65 63 58 55 55 46

Support Staff (SY) 107 104 99 98 55 83

 Administrative Support 36

 Professional/Technical Support 62

Breakout by Administrative and Research Allocations

Administrative Allocation $5,915 $6,7990 $8,019 $7,958 $7,958 $6,702

Research Allocation 13,802 15,864 15,266 20,420 18,362 $17,198

Total by Administrative & Research 

Allocations $19,717 $22,663 $23,285 $28,378 $26,320 $23,900

Breakout by In-House and Extramural Funding

In-House Allocation $18,731 $21,530 $22,201 $22,551 $20,493 $18,993

Extramural Funding** 986 1,133 1,084 5,827 5,827 4,907

Total by In-House & Extramural 

Funding $19,717 $22,663 $23,285 $28,378 26,320 $23,900

*Other funding is from State and Private Forestry and National Forest Systems.

**Includes interagency agreements, fire hubs in Joint Fire Science, etc.

Forest Products Laboratory Research Programs

(dollars in thousands)

Description of Research Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Composites Science Research

 Allocation $1,671 $1,875 $1,875 $2,659 $2,659 $2,239

 Scientists (SY) 5 5 5 6 6 5

 Support Staff (SY) 3 3 3 3 3 3

Forest Materials Modification Research

 Allocation 2,616 2,905 2,905 3,676 3,676 3,096

 Scientists (SY) 9 9 9 9 9 8

 Support Staff (SY) 4 4 5 5 5 4

Fiber & Chemical Sciences

 Allocation 2,919 3,205 3,205 3,747 3,747 3,156

 Scientists (SY) 6 6 6 6 6 5

 Support Staff (SY) 8 8 8 8 8 7

Microbial & Biochemical Research

 Allocation 2,506 2,790 2,790 3,197 3,197 2,693

 Scientists (SY) 6 6 6 6 6 5

 Support Staff (SY) 7 6 5 5 5 4
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 257

Description of Research Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Engineered Properties & Structures

 Allocation 3,206 3,500 3,180 4,314 4,314 4,379

 Scientists (SY) 10 10 10 7 7 7

 Support Staff (SY) 1 2 1 1 1 1

Wood Anatomy & Forest Mycology in a 

Changing Global Environment

 Allocation N/A N/A 320 634 634 534

 Scientists (SY) N/A N/A 2 3 3 3

 Support Staff (SY) N/A N/A 0 0 0 0

Fire Building Sciences

 Allocation N/A N/A 260 735 735 619

 Scientists (SY) N/A N/A 3 2 2 2

 Support Staff (SY) N/A N/A 5 5 5 4

Durability & Wood Protection Research

 Allocation 2,746 3,050 3,296 3,608 3,608 3,039

 Scientists (SY) 8 7.5 6 8 8 7

 Support Staff (SY) 12 12 12 13 13 11

Economics & Statistics Research

 Allocation 2,152 3,397 2,397 3,750 3,750 3,158

 Scientists (SY) 9 9 8 8 8 7

 Support Staff (SY) 1 1 1 1 1 1

Total Allocations $17,816 $19,722 $20,228 $26,320 $26,320 $22,167

Total Scientists (SY) 53 52 55 55 55 48

Total Support Staff (SY) 36 36 40 41 41 35

International Institute of Tropical Forestry

Forest Service Research and Development delivers research on tropical forests through the International Institute of 

Tropical Forestry (IITF). The IITF is located in Río Piedras, Puerto Rico and is dedicated to tropical forestry on an 

international level and develops and exchanges knowledge critical to sustaining tropical ecosystem benefits. The IITF 

serves as a focal point for bringing external research and educational resources to bear on issues affecting tropical 

forests and grasslands.

International Institute of Tropical Forestry Field Unit Allocations and

Staffing by Science and Administrative Categories

(dollars in thousands)

International Institute of Tropical 

Forestry (IITF)

FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Research & Development $2,228 $2,530 $2,691 $2,713 $2,713 $2,285

Other funding* 2,959 3,211 3,329 3,003 3,003 2,529

Total Allocation $5,187 $5,741 $6,020 $5,716 $5,716 $4,814

Staffing by Science and Administrative Categories

Scientists (SY) 10 9 11 11 11 9

Support Staff (SY) 16 14 14 16 16 13

 Administrative Support 0

 Professional/Technical Support 27

Breakout by Administration and Research Allocations

Administrative Allocation $1,437 $1,390 $1,390 $1,390 $1,390 $1,171

Research Allocation 3,750 4,351 4,630 4,326 4,326 3,643
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 258

International Institute of Tropical 

Forestry (IITF)

FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Total by Administrative & Research 

Allocations $5,187 $5,741 $6,020 $5,716 $5,716 $4,814

Breakout by In-House & Extramural Funding

In-House Allocation $4,783 $5,325 $5,761 $5,457 $5,457 $4,596

Extramural Funding** 404 416 259 259 259 218

Total by In-House & Extramural 

Funding $5,187 $5,741 $6,020 $5,716 $5,716 $4,814

*Other funding is from State and Private Forestry and National Forest Systems.

**Includes, interagency agreements, fire hubs in Joint Fire Science, etc.

International Institute of Tropical Forest Station Facilities

(dollars in thousands)

Name Description Scientists Support 

Staff

Facility 

Costs

International Institute of Tropical Forestry 

Headquarters

Forest Service owned facilities on 

leased land. Headquarters building is 

leased.

3 16 $340

Sabana Field Research Station Forest Service owned Station 3 provided 

by HQ

37

Total 6 16 $377

Northern Research Station

The mission of the Northern Research Station (NRS) is to improve people’s lives and help sustain the natural resources 

in the Northeast and Midwest through leading-edge science and effective information delivery. The NRS 

geographically covers a twenty state region across the Midwest and Northeast, comprising both the most densely 

populated and heavily forested region in America. 

Northern Research Station Field Unit Allocations and

Staffing by Science and Administrative Categories

(dollars in thousands)

Northern Research Station FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimate

FY 2018 

Estimate

Research & Development $51,538 $54,621 $55,027 $51,043 $51,043 $42,988

Other funding* 5,932 4,331 4,435 3,859 3,859 3,250

Total Allocation $57,470 $58,952 $59,462 $54,902 $54,902 $46,238

Staffing by Science and Administrative Categories

Scientists (SY) 142 142 138 127 127 107

Support Staff (SY) 309 288 277 274 274 231

 Administrative support 72

 Professional/Technical Support 202

Breakout by Administrative & Research Allocation

Administrative Allocation $9,196 $9,432 $9,640 $8,570 $8,570 $7,217

Research Allocation 48,274 49,520 49,822 46,332 42,473 39,021

Total by Administrative & Research 

Allocation $57,470 $58,952 $59,462 $54,902 $51,043 $46,238

Breakout by In-House & Extramural Funding

In-House Allocation 49,999 51,288 50,988 48,045 44,186 47,365 

Extramural Funding** 7,471 7,664 8,474 6,857 6,857 6,960

Total by In-House & Extramural Funding $57,470 $58,952 $59,462 $54,902 $51,043 $46,238

*Other funding is from State and Private Forestry and National Forest Systems.

**Includes interagency agreements, fire hubs in Joint Fire Science, etc.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 259

Northern Research Station Research Programs

(dollars in thousands)

Description of Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Ecology & Economic Sustainability of the 

Appalachian Forest in an Era of 

Globalization Research

 Allocation $3,260 $3,380 $3,380 $3,111 $3,111 $2,620

 Scientists (SY) 9 9 9 9 9 8

 Support Staff (SY) 21 16 15 16 16 13

Sustaining Forests in a Changing 

Environment

 Allocation 3,317 3,455 3,410 2,991 2,991 2,519

 Scientists (SY) 12 12 12 12 12 10

 Support Staff (SY) 17 14 15 10 10 8

Ecology & Management of Invasive 

Species & Forest Ecosystems Research

 Allocation 4,639 4,639 4,599 4,176 4,176 3,517

 Scientists (SY) 13 12 11 10 10 8

 Support Staff (SY) 26 22 23 21 21 18

Forest Inventory & Analysis in the 

Northern States

 Allocation 15,168 16,023 16,844 16,902 16,902 17,353

 Scientists (SY) 23 22 22 20 20 21

 Support Staff (SY) 111 109 110 95 95 98

Climate, Fire & Carbon Cycle Analysis 

Research

 Allocation 3,195 2,700 2,700 3,175 3,175 2,674

 Scientists (SY) 16 16 16 12 12 10

 Support Staff (SY) 17 13 13 17 17 14

Research on Ecosystem Change

 Allocation 7,198 7,592 7,312 5,619 5,619 4,732

 Scientists (SY) 18 17 17 13 13 11

 Support Staff (SY) 23 23 26 18 18 15

Urban Forest, Human Health & 

Environmental Quality Research

 Allocation 1,612 1,848 1,828 3,226 3,226 2,717

 Scientists (SY) 3 2 3 11 11 9

 Support Staff (SY) 8 8 8 8 8 7

Social Science Supporting Natural 

Resource Management & Policy

 Allocation 2,939 3,108 3,103 1,717 1,717 1,446

 Scientists (SY) 10 11 11 7 7 6

 Support Staff (SY) 7 6 7 3 3 3

Sustainable Management of Central 

Hardwoods, Ecosystems & Landscapes 

Research

 Allocation 1,501 1,690 1,665 1,283 1,283 1,081

 Scientists (SY) 6 6 6 5 5 4

 Support Staff (SY) 6 5 2 3 3 3

Applied Ecosystem Research: Theory & 

Application of Scaling Science in Forestry
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 260

Description of Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

 Allocation 1,661 1,828 1,828 1,701 1,701 1,433

 Scientists (SY) 6 6 6 6 6 5

 Support Staff (SY) 13 10 12 12 12 10

Hardwood Tree Improvement & 

Regeneration Center

 Allocation 896 959 1,024 1,024 1,024 862

 Scientists (SY) 4 4 4 3 3 3

 Support Staff (SY) 1 1 1 3 3 3

Strategic Foresight Research

 Allocation 0 1,200 1,400 1,014 1,014 854

 Scientists (SY) 0 4 4 3 3 3

 Support Staff (SY) 0 2 2 2 2 2

Restoration & Conservation of Rural & 

Urban Forests Research

 Allocation 0 5,300 5,300 5,101 5,101 4,296

 Scientists (SY) 0 17 17 17 17 14

 Support Staff (SY) 0 18 18 18 18 15

Total Allocation $45,386 $53,722 $54,393 $51,040 $51,040 $46,104

Total Scientists (SY) 120 138 138 128 128 112

Total Support Staff (SY) 250 247 252 226 226 209

Northern Research Station Facilities

(dollars in thousands)

Name Description Scientists Support 

Staff

Facility 

Costs

Hamden/Ansonia, CT Forest Service owned laboratory and administrative 

offices, and the Ansonia Quarantine Lab

3 11 $285

Evanston, IL Forest Service leased administrative space near 

Northwestern University

4 4 130

West Lafayette, IN Perdue University administrative offices and 

laboratories

3 3 120

Amherst MA University of Massachusetts administrative office 3 6 90

Baltimore, MD Forest Service leased administrative space 3 6 120

Oromo/Bradley, ME University of Maryland office 1 1 0

Lansing, MI Forest Service leased administrative space near 

Michigan State University

5 5 190

Houghton, MI Forest Service lab and administrative offices on 

Michigan Tech Campus

3 6 120

Grand Rapids, MN Forest Service laboratory and administrative offices 4 11 200

St. Paul, MN Forest Service owned laboratory and administrative 

offices on University of Minneapolis Campus

15 36 275

Columbia, MO University of Missouri administrative and laboratory 

offices 

6 4 0

Durham, NH Forest Service owned laboratory and administrative 

office on University of New Hampshire campus 

14 16 325

Syracuse, NY SUNY administrative office 1 6 25

New York, NY Forest Service leased administrative space 3 1 90

Newtown Square, PA 

(Station Headquarters)

Forest Service administrative space 7 27 442

Delaware, OH Forest Service owned laboratory and administrative 

offices

11 11 187

Warren, PA Forest Service owned laboratory and administrative 

offices

6 7 90
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 261

Name Description Scientists Support 

Staff

Facility 

Costs

Burlington, VT Forest Service laboratory and administrative offices on 

University of Vermont campus

3 7 28

Madison, WI Forest Service owned laboratory and administrative 

offices

5 9 70

Rhinelander, WI Forest Service owned laboratory and administrative 

offices

7 8 200

Morgantown, WV Forest Service owned laboratory and administrative 

offices on West Virginia campus

6 11 250

Parsons, WV Forest Service owned laboratory and administrative 

offices

3 12 90

Princeton, WV Forest Service laboratory and administrative offices 4 5 90

Total 120 213 $3,417

Pacific Northwest Research Station

The mission of the Pacific Northwest Station (PNW) is to generate and communicate impartial knowledge to help 

people understand and make informed choices about natural resource management and sustainability. 

Pacific Northwest Research Station Field Unit Allocations and

Staffing by Science and Administrative Categories

(dollars in thousands)

Pacific Northwest Research 

Station

FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Research & Development $38,152 $40,287 $40,546 $40,346 40,346 $33,979

Other funding* 9,043 6,950 6,627 10,365 10365 8,729

Total Allocation $47,195 $47,237 $47,173 $50,711 $50,711 $42,708

Staffing by Science and Administrative Categories

Scientists (SY) 78 76 74 72 72 61

Support Staff (SY) 190 198 209 208 208 175

 Administrative Support 75

 Professional/Technical Support 134

Breakout by Administrative Research Allocation

Administrative Allocation $10,946 $10,826 $11,742 $13,324 $13,324 11,221

Research Allocation 36,249 36,411 35,431 37,387 37,387 31,487

Total by Administrative & 

Research Allocations $47,195 $47,237 $47,173 $50,711 $50,711 $42,708

Breakout by In-House & Extramural Funding

In-House Allocation $38,117 $37,733 $42,225 $42,939 $42,939 $36,162

Extramural Funding** 9,078 9,504 4,948 7,772 7,772 6,546

Total by In-House & 

Extramural Funding $47,195 $47,237 $47,173 $50,711 $50,711 $42,708

*Other funding is from State and Private Forestry and National Forest Systems.

**Includes interagency agreements, fire hubs in Joint Fire Science, etc.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 262

Pacific Northwest Research Station Research Programs

(dollars in thousands)

Description of Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Ecological Process and Function

 Allocation $8,143 $8,198 $7,384 $7,120 $7,280 $5,996

 Scientists (SY) 17 16 16 15 15 13

 Support Staff (SY) 20 16 20 23 23 19

Goods, Services and Values

 Allocation 4,244 5,205 3,982 5,246 5,364 4,418

 Scientists (SY) 14 13 14 14 14 12

 Support Staff (SY) 2 2 2 3 3 3

Land and Watershed Management

 Allocation 6,832 6,201 5,465 5,621 5,748 4,734

 Scientists (SY) 13 13 14 13 13 11

 Support Staff (SY) 19 20 22 21 21 18

Resource Monitoring and Assessment

 Allocation 14,616 14,382 13,252 10,868 11,112 11,158

 Scientists (SY) 13 13 13 12 12 12

 Support Staff (SY) 81 84 83 79 75 81

Threat Characterization and Management

 Allocation 7,908 9,027 7,341 8,619 8,813 7,259

 Scientists (SY) 18 18 17 16 16 13

 Support Staff (SY) 9 9 15 9 10 8

Total Allocation $41,743 $43,013 $37,424 $37,474 $38,317 $33,565

Total Scientists (SY) 75 73 74 70 70 61

Total Support Staff (SY) 131 131 142 135 132 129

Pacific Northwest Research Station Facilities

(dollars in thousands)

Name Description Scientists Support Staff Facility Costs

Station Director’s 

Office General Service Administration leased space 9 29 $435

Anchorage General Service Administration leased space 18 1 248

Corvallis Pacific Northwest Owned Space 45 13 1,162

Fairbanks Leased Space from University of Arkansas 1 0 0

Juneau Pacific Northwest Owned Space 10 4 154

La Grande Pacific Northwest Owned Space 10 5 128

Olympia Pacific Northwest Owned Space 15 4 157

Portland General Service Administration leased space 41 7 546

Prineville Leased Space from Forest Supervisor’s Office 2 1 50

Seattle General Service Administration leased Space 18 3 508

Sitka Leased Space through Agreement 2 0 29

Wenatchee Pacific Northwest Owned Space 7 3 177

Total 178 70 $3,594

Pacific Southwest Research Station

The Pacific Southwest Research Station (PSW) provides research to inform management and conservation efforts in 

the unique ecosystems of California, Hawaii, and the U.S. affiliated Pacific Islands. These include the nation’s lowest 

and driest desert, the highest elevations within the 48 contiguous States, and rich native plant and animal diversity, 

including nearly half of the nation’s threatened and endangered species. The PSW delivers its mission through five 

broad Program Areas: Conservation Biology, Ecosystem Function and Health; Fire and Fuels; Institute of Pacific 

Island Forestry; and Urban Ecosystems and Social Dynamics.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 263

Pacific Southwest Research Station Field Unit Allocations and

Staffing by Science and Administrative Categories

(dollars in thousands)

Pacific Southwest 

Research Station

FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Research & Development $18,579 $20,090 $19,746 $17,381 $17,381 $14,638

Other funding* 4,970 4,839 5,081 3,980 3,980 3,352

Total Allocation $23,549 $25,739 $24,827 $21,361 $21,361 $17,990

Staffing by Science and Administrative Categories

Scientists (SY) 42 40 38 38 40 40

Support Staff (SY) 106 105 107 107 107 107

 Administrative Support 32

Professional/Technical

Support

75

Breakout by Administrative & Research Allocation

Administrative Allocation $9,090 $9,076 $8,047 $7,323 $7,323 $6,167

Research Allocation 14,459 16,663 16,780 14,038 14,038 11,823

Total by Administrative 

& Research Allocation $23,549 $25,739 $24,827 $21,361 $21,361 $17,990

Breakout by In-House & Extramural Funding

In-House Allocation 21,119 23,404 23,476 20,115 20,115 16,941

Extramural Funding** 2,430 2,335 1,351 1,246 1,246 1,049

Total by In-House & 

Research Allocation $23,549 $25,739 $24,827 $21,361 $21,361 $17,990

*Other funding is from State and Private Forestry and National Forest Systems

**Includes interagency agreements, fire hubs in Joint Fire Science, etc.

Pacific Southwest Research Station Research Programs

(dollars in thousands)

Description of Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Conservation Biology

 Allocation $3,500 $3,860 $3,980 $3,700 $3,700 $3,116

 Scientists (SY) 11 11 10 10 10 8

 Support Staff (SY) 19 22 22 22 22 19

Ecosystem Function and Health

 Allocation 3,880 3,935 4,150 3,950 4,200 3,327

 Scientists (SY) 12 12 11 10 11 8

 Support Staff (SY) 16 17 17 17 17 14

Fire and Fuels

 Allocation 2,585 2,455 2,455 2,500 2,500 2,106

 Scientists (SY) 7 7 7 7 7 6

 Support Staff (SY) 16 16 16 16 16 13

Institute for Pacific Island Forestry

 Allocation 1,810 1,875 1,900 1,850 2,000 1,558

 Scientists (SY) 7 6 6 6 7 5

 Support Staff (SY) 8 8 8 8 8 7

Urban Ecosystems and Social Dynamics

 Allocation 1,380 1,380 1,270 1,300 1,400 1,095

 Scientists (SY) 5 4 5 5 5 4

 Support Staff (SY) 5 4 3 3 3 3
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 264

Description of Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Total Allocation $13,155 $13,505 $11,055 $13,300 $13,800 $11,202

Total Scientists (SY) 45 40 39 38 40 31

Total Support Staff (SY) 64 67 66 66 66 56

Pacific Southwest Station Facilities/Administrative Locations

(dollars in thousands)

Name Description of Location Research

Scientists

Support 

Staff

Facility 

Costs

Albany, CA Station Headquarters – space is co-located with 

and leased from Agricultural Research Service, 

near University of California-Berkeley

3 29 $223

Arcata, CA Space co-located with Humboldt State University 

– primarily watershed, wildlife, and fisheries 

research

5 15 90

Davis, CA Located near University of California-Davis and 

has Pacific Southwest largest lab

8 12 495

Fresno, CA Space co-located with Cal State-Fresno. Provides 

access to Sierra Nevada and at the San Joaquin 

Experimental Range

2 3 80

Hilo, HI Location of the Institute for Pacific Island 

Forestry

6 13 21

Placerville, CA Houses the Institute of Forest Genetics and 

provided a central location in the Sierra Nevada 

for partnerships and research

1 8 80

Redding, CA Space co-located with Forest Service Region 5 

and provides a central location in Northern 

California for partnerships and research

5 8 300

Riverside, CA Primary Southern California office, located near 

University of California – Riverside

8 21 150

Total 38 109 $1,439

Rocky Mountain Research Station 

The Rocky Mountain Research Station (RMRS) develops and delivers scientific knowledge and innovative technology 

to improve the health and use of the Nation’s forests and rangelands – both public and private. The 12 non-coastal 

western States comprise the core geography of the RMRS. This territory comprises 15 distinct ecoregions, and 

overlaps/serves four National Forest System Regions (including 52 National Forests, 17 National Grasslands, over 

101million acres of Forest Service managed land). Straddling the Continental Divide, the RMRS domain has both

maritime and continental climates, and our biogeography spans a gradient from dry desert to grassland/shrublands and 

to alpine tundra. 

Rocky Mountain Research Station Field Unit Allocations and

Staffing by Science and Administrative Categories

(dollars in thousands)

Rocky Mountain Research Station FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Research & Development $37,799 $40,725 $41,877 $38,394 $38,394 $32,335

Other funding* 15,324 11,877 17,847 18,051 18,051 15,203

Total Allocation $53,123 $52,602 $59,724 $56,445 $56,445 $47,538

Staffing by Science and Administrative Categories

Scientists (SY) 103 95 93 94 94 79

Support Staff (SY) 385 352 342 321 321 270

 Administrative Support 100
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 265

Rocky Mountain Research Station FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

 Professional/Technical Support 221

Breakout by Administrative and Research Allocations

Administrative Allocation $7,441 $7,593 $7,696 $7,932 $7,932 $6,680

Research Allocation 45,682 45,009 52,028 48,513 48,513 40,858

Total by Administrative & Research 

Allocations $53,123 $52,602 $59,724 $56,445 $56,445 $47,538

Breakout by In-House and Extramural Funding

In-House Allocation $48,213 $46,517 $53,658 $47,899 $47,899 $40,341

Extramural Funding** 4,910 6,085 6,066 8,546 8,546 7,197

Total by In-house & Extramural 

Funding $53,123 $52,602 $59,724 $56,445 $56,445 $47,538

*Other funding is from State and Private Forestry and National Forest Systems.

**Includes interagency agreements, fire hubs in Joint Fire Science, etc.

Rocky Mountain Research Station Research Programs

(dollars in thousands)

Description of Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Forest and Woodland Ecosystems 

Research

 Allocation $6,313 $6,145 $5,554 $5,168 $5,168 $4,352

 Scientists (SY) 19 18 17 17 17 14

 Support Staff (SY) 38 34 29 28 28 24

Grasslands, Shrublands and Deserts 

Research

 Allocation 3,300 3,234 3,020 2,960 2,960 2,493

 Scientists (SY) 15 14 13 13 13 11

 Support Staff (SY) 29 24 23 19 19 16

Wildlife and Terrestrial Ecosystems 

Research

 Allocation 2,649 2,994 2,394 2,474 2,474 2,084

 Scientists (SY) 12 12 11 11 11 9

 Support Staff (SY) 32 26 25 20 20 17

Air, Water and Aquatic Environments 

Research

 Allocation 3,826 3,666 3,942 3,942 3,597 3,320

 Scientists (SY) 16 15 14 14 14 12

 Support Staff (SY) 37 33 34 25 25 21

Fire, Fuels and Smoke Research

 Allocation 4,493 5,246 4,931 5,072 5,072 4,272

 Scientists (SY) 20 15 16 17 17 14

 Support Staff (SY) 58 49 49 51 51 43

Inventory and Monitoring

 Allocation 9,664 10,633 10,620 11,591 11,591 11,900

 Scientists (SY) 4 3 3 3 3 3

 Support Staff (SY) 106 96 103 96 96 99

Human Dimensions Research

 Allocation 2,668 2,532 2,946 3,133 3,133 2,639

 Scientists (SY) 15 15 14 14 14 12

 Support Staff (SY) 20 13 13 16 16 13
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 266

Description of Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Aldo Wilderness Research Institute

 Allocation 849 757 1,050 1,245 1,245 1,049

 Scientists (SY) 2 3 3 3 3 3

 Support Staff (SY) 1 4 6 5 5 4

Total Allocations $33,762 $35,207 $34,457 $35,585 $35,240 $32,109

Total Scientists 103 95 91 92 92 78

Total Support Staff 321 279 282 260 260 237

Rocky Mountain Research Station Laboratory Facilities

(dollars in thousands)

Facility Name Scientists Support 

Personnel

Facility Costs

Ft. Collins, CO 20 60 $407

Missoula Forestry Lab, MT 17 25 192

Missoula Fire Lab, MT 13 43 283

Bozeman, MT 4 9 96

Albuquerque, NM 2 7 239

Flagstaff, AZ 7 13 244

Ogden, UT 3 44 466

Provo, UT 4 7 123

Logan, UT 1 4 192

Moscow, ID 10 21 239

Boise, ID 6 23 201

Reno 1 3 61

Rapid City 1 3 61

Total 89 262 $2,804

Southern Research Station

The mission of Southern Research Station (SRS) is to improve people’s lives and help sustain the natural resources in 

the Southeast through leading-edge science and effective information delivery. SRS is one of the largest forestry 

research stations in the world extending across 13 States, comprising both the most densely populated and heavily 

forested region in America. SRS’s internal capacity for scientific research is enriched and extended through 19 

experimental forests and networks of partnerships with other researchers, practitioners, and volunteers from a variety of 

groups and organizations.

Southern Research Station Field Unit Allocations and

Staffing by Science and Administrative Categories

(dollars in thousands)

Southern Research Station FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Research & Development $45,097 $48,278 $48,187 $46,414 $46,414 $39,090

Other funding* 6,234 5,047 5,355 5,327 5,327 4,486

Total Allocation $51,331 $53,325 $53,542 $51,741 $51,741 $43,576

Staffing by Science and Administrative Categories

Scientists (SY) 114 110 102 105 101 88

Support Staff (SY) 288 284 278 274 278 231

 Administrative Support 94

 Professional/Technical Support 180

Breakout by Administrative and Research Allocation

Administrative Allocation $6,338 $6,857 $7,732 $6,505 $6,505 $5,478
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 267

Research Allocation 44,993 46,468 45,810 45,236 45,236 38,098

Total by Administrative & 

Research Allocation $51,331 $53,325 $53,542 $51,741 $51,741 $43,576

Breakout by In-House and Extramural Funding

In-House Allocation $45,744 $46,670 $47,316 $45,554 $45,554 $38,365

Extramural Funding 5,587 6,655 6,226 6,187 6,187 5,211

Total by In-House & Extramural 

Funding $51,331 $53,325 $53,542 $51,741 $51,741 $43,576

*Other funding is from State and Private Forestry and National Forest Systems.

**Includes interagency agreements, fire hubs in Joint Fire Science, etc.

Southern Research Station Research Programs

(dollars in thousands)

Description of Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

Bottomland Hardwoods Research

 Allocation $4,566 $4,855 $5,047 $4,289 $4,282 $3,612

 Scientists (SY) 16 16 14 15 15 13

 Support Staff (SY) 19 19 19 18 18 15

Forest Disturbance Science

 Allocation 961 1,208 1,176 1,060 1,017 893

 Scientists (SY) 8 8 7 7 7 6

 Support Staff (SY) 14 15 11 12 12 10

Upland Hardwood Ecology and 

Management Research

 Allocation 2,255 2,324 2,526 2,339 2,445 1,970

 Scientists (SY) 7 7 7 8 8 7

 Support Staff (SY) 12 11 17 15 15 13

Longleaf Pine Ecosystems Restoration 

Research

 Allocation 2,048 2,318 2,030 1,770 1,702 1,491

 Scientists (SY) 7 6 4 5 5 4

 Support Staff (SY) 10 9 8 7 7 6

Southern Pine Ecology and Management 

Research

 Allocation 1,831 2,498 2,585 2,293 2,583 1,931

 Scientists (SY) 6 6 5 5 5 4

 Support Staff (SY) 12 11 15 15 15 13

Forest Genetics Research

 Allocation 2,942 3,190 2,947 2,449 2,402 2,063

 Scientists (SY) 6 6 5 6 6 5

 Support Staff (SY) 14 14 13 12 12 10

Watershed Science Research

 Allocation 3,121 3,268 3,270 2,825 2,826 2,379

 Scientists (SY) 11 11 12 12 12 10

 Support Staff (SY) 22 21 18 17 17 14

Research on Insects, Diseases and 

Invasive Plants

 Allocation 4,647 4,729 3,670 3,064 2,850 2,581

 Scientists (SY) 10 9 9 8 8 7

 Support Staff (SY) 21 24 13 13 13 11

Forest Operations Research

 Allocation 977 1,023 958 842 904 709
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 268

Description of Program FY 2013 

Actual

FY 2014 

Actual

FY 2015 

Actual

FY 2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

 Scientists (SY) 3 2 2 2 2 2

 Support Staff (SY) 7 7 5 5 5 4

Utilization of Southern Forest Resources

 Allocation 1,790 1,705 1,865 1,635 1,487 1,377

 Scientists (SY) 5 5 4 4 4 3

 Support Staff (SY) 6 5 5 5 5 4

Forest Inventory and Analysis in the South

 Allocation 13,852 14,592 15,436 17,653 17,653 18,124

 Scientists (SY) 13 13 13 13 13 13

 Support Staff (SY) 72 70 78 81 81 83

Forest Economics and Policy Research

 Allocation 1,278 1,284 1,369 1,168 1,128 1,145

 Scientists (SY) 6 5 5 5 5 5

 Support Staff (SY) 6 6 6 6 6 6

Eastern Forest Environmental Threat 

Assessment Center

 Allocation 1,898 2,483 2,395 2,057 2,006 2,036

 Scientists (SY) 10 9 8 8 8 8

 Support Staff (SY) 16 16 13 13 13 13

Total Allocations $42,166 $45,477 $45,274 $43,444 $43,285 $43,935

Total Scientists (SY) 108 103 95 98 98 85

Total Support Staff (SY) 231 228 221 219 219 199

Southern Research Station Facilities/Administrative Locations

(dollars in thousands)

Name Description of Location Scientists Support Staff Facility Costs

Asheville, NC Forest Service Headquarters Building 6 50 $59

Bent Creek/Koen 

Asheville, NC

Forest Service laboratory, greenhouse & 

administrative offices

4 4 61

Coweeta Otto, NC Forest Service owned hydrologic 

laboratory

5 7 125

Research Triangle Park, 

Durham, NC

Forest Service owned laboratory and 

greenhouses

8 13 117

Auburn/Escambia 

Auburn, AL

Forest Service owned laboratory and 

greenhouse

3 12 85

Crossett, AR Forest Service owned administrative office 0 3 1

Crossett Experimental 

Forest, Crossett, AR

Forest Service administrative office 0 2 5

Athens/Hitchiti Athens, 

GA

Forest Service owned laboratory and 

administrative offices

15 18 190

Pineville/Palustris 

Pineville, LA

Forest Service owned laboratory and 

greenhouse

8 19 51

Saucier/Harrison 

Saucier, MS

Forest Service owned laboratory and 

greenhouse

1 6 23

Stoneville/Oxford 

Stoneville, MS

Forest Service owned laboratory and 

greenhouse

7 9 85

Santee Cordesville, SC Forest Service laboratory and 

administrative offices

2 4 49

Savannah Rover New 

Ellenton, SC

Forest Service owned administrative office 1 5 1

Nacogdoches 

Nacogdoches, TX

Forest Service owned laboratory 2 8 5
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 269

Name Description of Location Scientists Support Staff Facility Costs

Blacksburg Blacksburg 

VA

Forest Service owned laboratory 4 3 1

Total 66 163 $858

Note: Facilities costs are maintenance costs only and do not include rent, communication, or utilities of $1,422,447.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 270

Forest Service Research and Development Expenditures by State

(dollars in thousands)

State Station

FY2016 

Enacted

FY 2017 

Estimates

FY 2018 

Estimates

ALABAMA SRS $2,497 $2,497 $2,534

ALASKA PNW $11,891 $11,891 $12,069

ARIZONA RMRS $3,589 $3,589 $3,643

ARKANSAS SRS $1,852 $1,852 $1,880

CALIFORNIA PSW $15,664 $15,664 $15,899

COLORADO RMRS $8,873 $8,873 $9,006

CONNECTICUT NRS $2,177 $2,177 $2,210

DELAWARE NRS No in-state R&D facilities*

FLORIDA SRS $745 $745 $756

GEORGIA SRS $3,226 $3,226 $3,274

HAWAII PSW $2,550 $2,550 $2,588

IDAHO RMRS $3,760 $3,760 $3,816

ILLINOIS NRS $1,202 $1,202 $1,220

INDIANA NRS $1,024 $1,024 $1,039

IOWA NRS No in-state R&D facilities*

KANSAS RMRS No in-state R&D facilities*

KENTUCKY SRS $441 $441 $448

LOUISIANA SRS $4,212 $4,212 $4,275

MAINE NRS $337 $337 $342

MARYLAND NRS $1,434 $1,434 $1,455

MASSACHUSETTS NRS $1,270 $1,270 $1,289

MICHIGAN NRS $2,935 $2,935 $2,979

MINNESOTA NRS $8,796 $8,796 $8,928

MISSISSIPPI SRS $5,819 $5,819 $5,906

MISSOURI NRS $2,331 $2,331 $2,366

MONTANA RMRS $5,545 $5,545 $5,628

NEBRASKA RMRS No in-state expenditures listed**

NEVADA RMRS $345 $345 $350

NEW HAMPSHIRE NRS $5,407 $5,407 $5,488

NEW JERSEY NRS $227 $227 $230

NEW MEXICO RMRS $969 $969 $984

NEW YORK NRS $3,027 $3,027 $3,072

NORTH CAROLINA SRS $9,194 $9,194 $9,332

NORTH DAKOTA RMRS No in-state R&D facilities*

OHIO NRS $2,973 $2,973 $3,018

OKLAHOMA SRS No in-state R&D facilities*

OREGON PNW $26,407 $26,407 $26,803

PENNSYLVANIA NRS $7,559 $7,559 $7,672

PUERTO RICO IITF $2,720 $2,720 $2,761

RHODE ISLAND NRS No in-state R&D facilities*

SOUTH CAROLINA SRS $2,458 $2,458 $2,495

SOUTH DAKOTA RMRS $811 $811 $823

TENNESSEE SRS $14,616 $14,616 $14,835

TEXAS SRS $1,518 $1,518 $1,541

UTAH RMRS $15,434 $15,434 $15,665

VERMONT NRS $913 $913 $927

VIRGINIA SRS $996 $996 $1,011

WASHINGTON PNW $6,959 $6,959 $7,063

WEST VIRGINIA NRS $5,404 $5,404 $5,485

WISCONSIN FPL $26,320 $26,320 $26,714

WISCONSIN NRS $4,027 $4,027 $4,087

WYOMING RMRS No in-state expenditures listed**
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 271

Stewardship Contracting

Background 

This special exhibit is included to address requirements of Healthy Forests Restoration Act of 2003 (as amended, 16 

U.S.C 6591c): 

“The Forest Service shall report annually to the Committee on Agriculture, Nutrition, and Forestry of 

the Senate and the Committee on Agriculture of the House of Representatives on -

 the status of development, execution, and administration of contracts under subsection (b);

 the specific accomplishments that have resulted; and

 the role of local communities in development of agreements or contract plans.”

Overview

Stewardship contracts and agreements are used to manage natural resources by implementing ecosystem restoration 

projects. Stewardship contracts support new and emerging markets to use wood removed through restoration activities, 

including using woody biomass for energy, in addition to sustaining traditional markets. Requests for proposals use 

best value selection that evaluates criteria such as capability, use of local workforce and creation of jobs in addition to 

price. This focus is intended to 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. Stewardship 

contracting helps the Forest Service achieve land and natural resource management goals while promoting closer 

public-private working relationships by using the value of timber or other forest products to offset the cost of 

restoration activities.

The number of stewardship contracts and agreements awarded has levelled out over the past three to four years as the 

economy moderates. However, a better understanding of how to best use stewardship contracts has resulted in projects 

of larger size.

The Stewardship Authority 

The stewardship contracting authority 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. 

Temporary authority was granted under the 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, and 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). The Agricultural Act of 2014 (2014 Farm Bill) permanently extended stewardship contracting authority 

by amendment to the Healthy Forest Restoration Act of 2003 (16 USC 6591c). 

Stewardship contracting permits the Forest Service to apply the value of timber or other forest products from 

stewardship sales as an offset against the costs to accomplish additional 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 contracts are awarded on a best-value basis and may be up to 10 years in duration. The Stewardship 

Contracting authority may be used for: 

 maintaining or removing roads and trails to restore or maintain water quality;

 improving soil productivity, habitat for wildlife and fisheries, or other resources; 

 prescribed fires to improve the composition, structure, condition, and health of timber stands or wildlife 

habitat; 

 removing vegetation or other activities to promote healthy forests, reduce fire hazards, or achieve other land 

management objectives;

 restoring and maintaining watersheds;

 restoring and maintaining wildlife and fisheries habitat; 

 controlling noxious and invasive weeds; and 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 272

 replanting native vegetation.

In FY 2016, the agency continued to inform employees, partner organizations, and contractors about stewardship 

contracting through brochures, local field trips, and both live and on-line training opportunities. This ensures a 

common understanding of stewardship contracting and facilitates its use in attaining land management goals while 

meeting local and rural community needs. 

Specific Accomplishments 

Stewardship contracting allows the Forest Service to focus on a variety of land management activities and accomplish 

restoration work where it is needed. Through stewardship contracting we accomplish hazardous fuels reduction, 

wildlife habitat improvement, forest health improvement, and nonnative invasive plant species control.

Stewardship contracting has proved to be a valuable tool in many locations to implement restoration activities and meet 

multiple land management objectives. Table 1 below shows specific actual accomplishments during FY 2013 to FY 

2016. Table 2 below shows the acres awarded, number of contract or agreements awarded, and volume awarded from 

FY 2003 to FY 2016. The number of contracts or agreements awarded includes those where forest products are 

exchanged for service activities as well as those where excess Stewardship Contracting funds are used to pay for 

service activities without the exchange of forest products. 

In many cases, multiple land management objectives are met through a single treatment activity. For example, a 

hazardous fuel reduction treatment can also improve wildlife habitat. These accomplishments not only result in 

ecosystem benefits, but also forest products for manufacturing and energy production, and the creation of jobs 

contributing to sustainable communities.

Local Communities 

Collaboration with local communities is a key component of successful stewardship contracting. Collaborative efforts 

start early and continue throughout project planning, implementation, and monitoring. Collaboration during the 

development of stewardship contracting projects results in a sense of ownership in the project by the community, a 

better understanding by communities of natural resource issues, and increased public support. Collaboration also means 

the Forest Service can tailor stewardship offerings that address local issues, needs, and capabilities. 

We have contracted with the Pinchot Institute for Conservation to conduct a programmatic multiparty monitoring 

process for FY 2016. In prior years, the Pinchot Institute found that stewardship contracting was maturing, and support 

has grown significantly. One of the major benefits identified is that stewardship contracting offers increased 

opportunities to frame a set of collaboratively defined desired future conditions. Participants increasingly welcome the 

use of stewardship agreements as a way to involve more stakeholders, increase learning opportunities, and positively 

influence forest management planning. In the FY 2015 report, Pinchot concluded that while individual project results 

may vary, partnerships and working relationships tend to grow through collaboration and allow projects to move 

forward. The results of the FY 2016 programmatic monitoring efforts by the Pinchot Institute will be available in early 

spring of 2017. When available, the entire report will be online at: 

http://www.pinchot.org/gp/Stewardship_Contracting
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 273

Table 1. Actual Stewardship Contracting

Accomplishments (FY 2013 to FY 2016)

Awarded, Number of Contract or Agreements

Awarded, and Volume Awarded (FY 2003 to FY 2016)

Fiscal

Year

Acres 

Awarded

Number of 

Contracts & 

Agreements

Volume Awarded (hundred 

cubic feet - MBF)

2003 11,696 35 35,000

2004 43,187 53 51,000

2005 34,491 43 98,000

2006 60,344 91 236,000

2007 77,676 110 331,000

2008 65,890 130 339,000

2009 88,304 141 372,000

2010 152,834 232 567,000

2011 100,577 208 481,000

2012 134,257 226 672,000

Accomplishment FY 2013

Actual

FY 2014

Actual

FY 2015

Actual

FY 2016

Actual

Acres of forest vegetation established 3,391 5,167 6,865 5,050

Acres of forest vegetation improved 36,925 50,399 44,702 42,634

Acres of noxious weeds/invasive plant treatments 2,746 4,035 3,024 5,434

Acres of wildlife habitat restored or improved 72,578 15,679 66,744 22,133

Miles of stream habitat restored or enhanced 44 15 82 48

Miles of roads decommissioned 43 21 29 10

Volume of timber sold (million board feet 

(MMBF)) 709 816 829 718

Green tons of biomass made available for energy 

production 865,560 247,541 323,830 217,698

Acres of hazardous fuels treated to reduce the risk 

of catastrophic fires (Non-WUI) 130,190 82,894 66,169 79,694

Acres of wildland-urban interface (WUI) highpriority hazardous fuels treated 69,150 96,567 73,072 96,387

Number of stewardship contracts/agreements 

contributing to watersheds in fully functioning 

condition

17 25 1 2
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 274

Fiscal

Year

Acres 

Awarded

Number of 

Contracts & 

Agreements

Volume Awarded (hundred 

cubic feet - MBF)

2013 171,767 195 709,000

2014 177,208 161 816,000

2015 166,317 168 829,000

2016 166,462 225 718,000

Stewardship Contracting with Local Communities

Texas

Since 2012, the National Forests and Grasslands in Texas (NFGT) has awarded more than 40 stewardship contracts and 

agreements, with a timber value in excess of $9 million dollars. The sale or exchange of timber resulted in $2 million 

dollars in stewardship activities, collection of $2.6 million for Knutson-Vandenberg projects, and the potential to 

collect more than $4.4 million dollars in retained receipts for additional stewardship projects.

Activities completed with these stewardship projects include: 

 supported prescribed burning on more than 600,000 acres;

 flood recovery projects in East Texas to stabilize soils and provide fish passage;

 felled more than 8,000 drought-killed hazard trees along roads, trails, campgrounds, and private land 

boundaries;

 repairing a historic dam on the NFGT whose spillway is in danger of failing;

 marked more than 4,000 acres of timber for sale with the help of Tribal Partners and Small Business (8A) 

Contractors;

 installed artificial cavities for the endangered Red Cockaded Woodpecker;

 completed a watershed restoration project on one mile of creek;

 removed non-native invasive plants on more than 350 acres;

 planted native longleaf pine on 50 acres following a wildfire; and 

 created and maintained over 15 acres of wildlife openings.

Colorado

The Grand Mesa, Uncompahgre, and Gunnison (GMUG) National Forests use stewardship contracting and agreements 

as the foundation to implement forest restoration work on the Uncompahgre Plateau Collaborative Forest Landscape 

Restoration Program (CFLRP). From 2010 – 2016, the forest awarded eight integrated resource service contracts and 

one stewardship agreement to complete forest restoration activities on 7,358 acres, including the sale of 65,816 

hundred cubic feet (CCF) of timber within the CFLRP project boundary. The GMUG National Forests entered into a 

stewardship agreement with Mule Deer Foundation that has increased the scope and scale of wildlife habitat 

improvement and forest restoration projects by increasing the Forest’s capacity to prepare projects for implementation. 

The stewardship agreement with the Mule Deer Foundation has also generated 2,378 CCF of timber volume. The 

GMUG National Forests are presently working with the National Wild Turkey Federation to add another stewardship 

agreement to further increase the forests’ capacity to complete forest restoration and wildlife habitat improvement.

Pennsylvania

The Allegheny National Forest (ANF) has partnered with the Kane Area School District (KASD) in stewardship 

agreements since 2009. This project has occurred over several phases and continues to improve. The KASD secured a 

USDA Woody Biomass Energy Grant in 2007, which provided for the purchase and installation of heating systems that 

utilize woody biomass. The Marienville Ranger District of the Allegheny National Forest entered into a stewardship 

agreement with the KASD from 2009-2014 to provide woody material used to heat the school, in exchange for service 

work completed on the ANF. A second agreement was approved in 2015 and includes the following activities and 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 275

services:

 Supply at least 1,200 tons of fuelwood to the Kane Area School District annually

 Reconstruct a Forest Service road to reduce sedimentation and improve water quality

 Install a bottomless culvert to allow for fish passage and improve aquatic species 

 Provide fuelwood to local communities

 Implement reforestation treatments 

 Remove timber for acid deposition remediation pond constructed to improve water quality and 12 miles of 

Eastern Brook Trout habitat in Bear Creek

 Incorporate educational opportunities for students to learn about natural resources, technology, and multimedia during project implementation and monitoring

Wyoming

The Bighorn National Forest has awarded five individual stewardship contracts between 2010 and 2015. The most 

recent example, the Swamp Stewardship project, utilized the Integrated Resource Timber Contract to achieve 

objectives of reducing hazardous fuels in a Wildland Urban Interface (WUI), aspen release, and increasing diversity in 

forested stands. The contract commercially harvested 595 acres, yielding over 8,000 CCF of sawtimber and nonsawtimber products. Posts and poles from this sale filled a local mill’s yard and sawtimber was utilized at the nearest 

large sawmill. Local contractors were used for some of the operations. Stewardship contracting allowed the forest to 

commercially harvest and non-commercially treat existing fuels and release aspen stands from conifer competition in a 

single contract. This one contract exceeded the forest’s annual aspen treatment goal. Without Stewardship authority 

this work would have taken multiple contracts and entries and most likely would not have utilized as much timber. The 

2005 Forest Plan revision has a strategy to “evaluate each vegetation project for its potential and feasibility as a 

stewardship contract, where appropriate, design treatments to facilitate stewardship projects.” To meet this strategy the 

forest has used Integrated Resource Timber and Service Contracts. Changing markets and direction make this a 

challenge, but being able to accomplish the work with one contract in one entry has gained the forest support for this 

approach. 

Michigan

The Hiawatha National Forest utilizes stewardship timber contracts, agreements, and retained receipts to achieve a 

variety of resource related goals through the sale of timber products. In Michigan’s Upper Peninsula, U.S. Highway 2 

passes through a Great Lakes Dunes ecosystem along the north shore of Lake Michigan. This dune system provides 

habitat for several rare wildlife and plant species. Scotch pine is not native to Michigan and was aggressively seeding 

into the dunes. Due to their unstable sandy condition, logging equipment was not appropriate to use on the dunes. 

Under the Bowline stewardship contract the logging contractor hired a tree service company to cut and scatter all 

Scotch pine trees over a 300-acre area. Retained receipts from this stewardship contract were also used to enter into an 

agreement with the Chippewa County Road Commission for a major culvert replacement project on Little Bear Creek 

where the county provided 20 percent of the funding. The objective of the project was to improve aquatic organism 

passage (AOP) and the free flowing characteristic of this creek, and reduce sediment entering the creek at the road 

crossing. 

Two additional AOP improvement projects were completed on Black Creek and a tributary to Black Creek through a 

stewardship agreement with Alger Country Road Commission. These AOP’s are the final improvement projects to 

complete within this high priority watershed for the Forest Service. They are also a high priority cold water fishery for 

the Michigan Department of Natural Resources. Additional stewardship agreements are being planned with three 

county road commissions for fiscal years 2017 and 2018.

Arizona

The Apache-Sitgreaves National Forest makes extensive use of stewardship contracts in the east side of the Four Forest 

Restoration Initiative CFLRP area. A biomass market is present in this region and has been a “best value” criteria for 

awarding stewardship contracts to harvest both biomass and commercial timber in one entry. 

In the past two fiscal years, nine stewardship contracts have been awarded on the Apache-Sitgreaves National Forest, 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 276

treating over 18,000 acres. These treatments not only provide forest products to the local industry, but also reduce the 

risk of crown and stand replacing fires within the project area. These projects serve to protect private property and 

infrastructure to the east and north of the project areas. The end result of the contracts will protect critical habitat for 

the Mexican spotted owl and the northern goshawk, as well as other species, from uncontrolled wildfire. In addition, 

the project areas are designed to provide a defensible space north of the Mogollon Rim to allow firefighters to possibly 

stop or reduce the intensity of a fire originating below the Mogollon Rim. 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 277

Transition to Second Growth in Alaska

Background

The State of Alaska and Forest Service State and Private Forestry program have entered into a $4 million Challenge 

Cost Share Agreement (CCSA) to conduct a young growth inventory and support workforce development for the 

timber industry. The inventory is well underway, and local residents have been successfully trained and are now 

working in various forestry-related jobs in Southeast Alaska.

Inventory Efforts

State and partner organization crews have collected data on over 11,000 acres of older young growth stands on Prince 

of Wales and surrounding islands. Forest Service and State personnel are summarizing the data collected into standlevel analyses of logging feasibility to determine how many of those older young growth acres will be operable during 

near-term project implementation. Another 13,000 acres are scheduled for inventory in 2017.

Seven Southeast Alaska residents were trained and hired for inventory work under the agreement in 2016. The State 

and Forest Service anticipate bringing on additional local hire crew members in 2017.

Old-Growth Bridge Timber

Forest Service crews on Prince of Wales, Ketchikan, and Petersburg are also focused on stand-level, data-driven 

inventories of old-growth timber stands to support timber sales in the current five-year sale schedule. The State and 

Tongass National Forest are in discussions about bringing in additional support for old-growth inventory under the 

CCSA. The Forest Service and Alaska Forest Association have developed a Memorandum of Understanding (MOU) 

to support collaborative efforts on old-growth inventory, project development, and organizational learning around 

timber sale conditions impacting the industry. This MOU is expected for signature in the second quarter of 2017, with 

implementation of specific tasks during the 2017 field season.

Other Ongoing Efforts in Support of the Transition

The Forest Service and other landowners in Southeast Alaska have established an all-landowners group to coordinate 

operations, find efficiencies, and share infrastructure to support resource management activities. Group members 

include Forest Service, Alaska Division of Forestry, Alaska Mental Health Trust Land Office, University of Alaska, 

and Sealaska.

To support utilization of wood products from the forest, the agency also is evaluating potential design of a wood 

quality study to determine the type, volume, and quality of products that can be manufactured from young growth Sitka 

spruce and western hemlock trees growing in Southeast Alaska.

The Alaska Region and the State of Alaska have entered into an agreement and are currently in the process of 

developing a Supplemental Project Agreement for the Koscuiscko Young Growth timber sale, which is expected to be 

offered and sold in late FY 2017 or early FY 2018.

The Forest Service is also continuing the Tongass-wide Young Growth Study, begun in 2002, to increase knowledge of 

silvicultural practices for various purposes including young growth management. 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 278

Sixty-Five year-old Stand that has not been Thinned

There is little commercially valuable timber in the stand at the moment, but there will be some in 

ten to twenty years. The photo shows some natural tree mortality occurring due to competition 

between tightly-packed trees for nutrients, water, and sunlight. “Thinning” means cutting some 

trees to reduce the space between them. This reduces the competition for nutrients, sunlight, and 

water so the remaining trees can grow in a healthy manner. The photos below show various 

stands of young-growth trees on the Tongass and the benefits of thinning those trees. 

 Sixty-year-old Precommercially Thinned Stand

Since the trees have been thinned, the remaining trees have less competition. This stand of trees is 

free to grow. Some commercial timber volume is available in this stand, and it will be even more 

viable in about 10 years. Wildlife forage species are present, but on the decline due to shade from 

canopy closure as the stand matures. 
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 279

Age Class Distribution of Young Growth Stands Across the Tongass National Forest

The majority of the acreage occurs in stands 50 years and younger. Commercial viability begins at approximately age 60, 

depending upon the site and precommercial thinning. The Tongass currently pre-commercially thins 4,000-6,000 acres per 

year, and needs to increase that to 8,000-9,000 acres per year to keep up with growth in the younger age classes. A near-term 

transition to a young-growth dependent harvest program is going to be challenging and yet the future, 10-20 years out, looks 

very promising.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 280

Unobligated Balances

Background 

This exhibit is not required by Congressional direction but is included to provide an update on the status of Forest 

Service 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 2017. The table does not include the unobligated balances from offsetting 

collections such as reimbursable or advanced collections. 

FY 2016 Forest Service - Unobligated Balances, End of Year

(dollars in thousands)

Forest Service Appropriation Prior Years

Budget Line Item/Programs Unobligated Balances

Forest and Rangeland Research

Research and Development $5,959

National Fire Plan (NFP) Research Activities 2,099

Joint Fire Science 4,452

Total Forest and Rangeland Research $12,510

State and Private Forestry (S&PF)

Forest Health - Federal Lands $7,976

Forest Health - Coop Lands 6,609

State Fire Assistance1 1,352

Volunteer Fire Assistance1 38

Forest Stewardship 3,190

Urban and Community Forestry 3,567

Community Forest and Open Space Conservation Program 320

International Forestry 9,116

NFP Forest Health - Federal Lands 0

NFP Forest Health - Coop Lands 0

NFP State Fire Assistance1 4,321

NFP Volunteer Fire Assistance1 51

Other 2,067

Total State and Private Forestry3 $38,607

S&PF Land and Water Conservation Fund (LWCF)

S&PF LWCF (Forest Legacy) $29,707

Total S&PF LWCF $29,707

National Forest System

Land Management Planning $3,047

Inventory & Monitoring 1,598

Recreation, Heritage, and Wilderness 3,191

Wildlife and Fisheries Habitat Management -879

Grazing Management 2,564

Restoration Partnership 1

Forest Products -4,071

Vegetation and Watershed Management 1,362

Minerals and Geology Management 7,709

Landownership Management -4,187
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 281

FY 2016 Forest Service - Unobligated Balances, End of Year

(dollars in thousands)

Forest Service Appropriation Prior Years

Budget Line Item/Programs Unobligated Balances

Law Enforcement Operations -1,135

Integrated Resource Restoration 5,829

Valles Caldera National Preserve 0

Collaborative Forest Landscape Restoration 4,340

Other 5,547

Total National Forest System3 $24,916

Wildland Fire Management2

Preparedness $55,726

Suppression 53,357

Hazardous Fuels Management 2,054

Collaborative Forest Landscape Restoration 85

Coop Fire – Volunteer Fire Assistance 24

Coop Fire – State Fire Assistance 7,383

Other 147

Total Wildland Fire Management $118,776

FLAME Fund $147,835

Total FLAME Fund $147,835 

Capital Improvement and Maintenance

Facilities Capital Improvement/Maintenance $8,766 

Roads Capital Improvement/Maintenance -3,613

Trails Capital Improvement/Maintenance 1,105 

Legacy Roads 2,574 

Deferred Maintenance 32 

Construction Disaster Supplemental 1,079 

Other 1,968

Total Capital Improvement and Maintenance $11,911

Land Acquisition - LWCF

Land Acquisition $31,684 

Total Land Acquisition LWCF $31,684 

Other Appropriations

Range Betterment Fund $1,167 

Gifts, Donations, and Bequests for Research 115 

Subsistence Management (Region 10) 188 

Total Other Appropriations $1,470

Grand Total $417,416

 

1Programs that were moved under Wildland Fire Management in FY 2014 but have balances in prior years. 

 

2Preparedness and Suppression balances include $45.1 and $19.9 million respectively for next generation airtanker (P.L. 113-235); 

 as of FY 2017 the full $65 million is available in Preparedness (difference derived from recoveries). 

 

3National Forest System and State and Private Forestry unobligated balances only include appropriated funds and do not match

 the Project Statement totals which includes transfers and other programs.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 282

USDA Working Capital Fund, Central Cost Distribution and Departmental

Shared Cost Programs Charges

Background

This exhibit is included to provide a three-year display of total costs paid by the Forest Service for these centrally 

administered programs.

Overview

The Forest Service, as an organizational entity of the Department of Agriculture (USDA), is provided administrative 

services managed centrally on behalf of the Department. These centrally administered programs are broken into two 

activities, the Working Capital Fund and Central Cost Distribution and Departmental Shared Cost Programs. It is 

important to note that cost estimates for actual usage programs have changed in the last three 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 FullTime 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 U.S.C. 2235. The WCF is a financing mechanism that currently supports 17 activity centers across five 

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.

These 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 the costs of services delivered. Pursuant to the terms of the general 

provisions in annual appropriations to USDA, agency administrators must authorize billings to their agency for these 

services. Therefore, 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 acts as one of the overseers in the review of cost estimates for the National Finance Center (NFC) 

through its participation in the WCF Executive Committee, a body comprised of representatives from 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 the WCF. The Forest Service actively works with the 

Department’s Chief Financial Officer to review activities included in the Central Cost Distribution and Departmental

Shared Cost Programs and the basis for any costs attributed to the Forest Service.

Tables on the following pages display Forest Service assessments for USDA WCF services and describe the range of 

WCF services that the USDA provides.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 283

FY 2016 to FY 2018 Working Capital Fund Assessments for the Forest Service 

Core Services

(dollars in thousands)

Core Service FY 2016

Enacted

FY 2017

Annualized 

CR

FY 2018

President's 

Budget

Material Management Services Center $835 877 683

Mail and Reproduction Management 471 540 467

Integrated Procurement Systems 8,414 8,423 7,882

Creative Media and Broadcast Center 352 614 616

Financial Management Services 56,099 54,238 50,793

Internal Control Support Services 321 330 396

Client Technology Services* 467 14,283 13,280

Telecommunication Services (Telecommunications Customer 

Services Center)* 206 0 0

Office of the Executive Secretariat 755 874 787

Enterprise Network Services 3,553 6,395 6,669

Total Core Services $71,473 $86,574 $81,573

*Telecommunication Customer Service Center transitioned to Client Technology Services (CTS) in FY 2017.

USDA Agency Specific Services

(dollars in thousands)

USDA Agency Specific Services FY 2016

Enacted

FY 2017

Annualized 

CR

FY 2018

President's 

Budget

Material Management Services $177 $175 $161

Mail and Reproduction Services Management Division 238 256 208

Creative Media and Broadcast Center 257 140 329

Financial Management Services 600 0 0

Client Technology Services* 152 13,950 11,864

Enterprise Network Services 711 874 1,467

HR Enterprise System Management 805 805 759

National Finance Center 8,959 8,869 7,319

National Information Technology Center (NITC)* 41,368 21,862 19,637

Procurement Operations Division 139 141 117

Total USDA Agency Specific Services $53,406 $47,072 $41,861

 *Identity, Credential and Access Management Services transitioned from NITC to Client Technology Services (CTS) in FY 

 2017.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 284

Total: Core Services Plus USDA Agency Specific Services

Core Services Plus USDA Agency Specific Services FY 2016

Enacted

FY 2017

Annualized 

CR

FY 2018

President's 

Budget

Total Working Capital Fund Assessments $124,879 $133,646 $123,434

FY 2016 and FY 2017 NITC/CTS costs are estimates and subject to change based on agency execution year needs.

Working Capital Fund Activities

Cost Recovery Methodologies

Activity Description Cost Distribution

National Finance Center 

Agency Specific

Provides:

 Payroll/personnel services to USDA/non-USDA 

agencies

 Applications support to Office of Personnel 

Management

 Record keeper/other services to support the 

Thrift Savings Plan

 Support services for USDA accounting 

applications

 PKI licenses/support

Beginning in FY 2005, services 

provided by NFC have been 

negotiated between NFC and 

serviced agencies. The nature, 

volume, and cost of services serve 

as the basis for Memoranda of 

Understanding between the 

parties.

National Finance Center 

Government Employee 

Services

Provides:

 Payroll/personnel services to USDA/non-USDA 

agencies

 Applications support to Office of Personnel 

Management

 Record keeper/other services to support the 

Thrift Savings Plan

 Support services for USDA accounting 

applications

 PKI licenses/support

Beginning in FY 2005, services 

provided by NFC have been 

negotiated between NFC and 

serviced agencies. The nature,

volume, and cost of services serve 

as the basis for Memoranda of 

Understanding between the 

parties.

Financial Management 

Services

Operates/maintains the following systems:

 Financial Management Modernization 

Initiative (FMMI - core accounting)

 Real property

 Corporate integrated administrative 

payments

 Other systems as necessary to support 

program agency missions and fulfill 

USDA’s fiduciary responsibilities to 

taxpayers

Provides:

 Core accounting/reporting services

 Agency-specific services

 Operates a corporate controller 

organization that integrates accountability

and systems across USDA

Financial/Adm. Pmts: Costs 

recovered based on agency share 

of FMMI workload (measured in 

general journal records)

Real Property: Costs recovered 

based on agency shares of USDAowned and GSA/commerciallyleased property
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 285

Activity Description Cost Distribution

Internal Control Support 

Services

Internal Control Support Services (ICSS) promotes 

and supports the USDA’s internal control program 

by assisting USDA agencies in their internal control 

compliance efforts. As part of its services, ICSS 

plans and manages the Department’s annual 

assessment of internal control over financial 

reporting and promotes best practices across the 

Department to ensure greater consistency in regard 

to internal control of financial processes, 

administrative processes, and information 

technology. ICSS also provides training programs, 

group presentations, and other support services in 

order to improve the Department’s internal control 

program and awareness of emerging events and 

current trends related to internal control.

Cost is distributed based on 

agency’s FTE percentages.

Creative Media and 

Broadcast Center

The Broadcast Media and Technology Center 

(BMTC) provides a wide array of video production 

and teleconferencing (both audio and video) 

services. The Visual Communication Center offers 

a variety of planning, fabrication, and development 

services for graphic productions, exhibits, and 

visitor center needs. The Center also provides web 

page graphic design services.

Agency percentage shares are 

based on the most recently 

completed fiscal year billings for 

services. Actual costs reflect use 

of the service and 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 Provides mainframe computer operations and 

application development and support services to 

support agency programs. NITC also provides IT 

consulting services and training, and data warehouse 

support for FMMI.

Agency percentages are based on 

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

Provides centralized telecommunications support 

services nationwide for the USDA, manages and 

provide internet access to USDA agencies and data 

connections between agencies (USDA Intranet), and 

assists agencies in using telecommunication services 

in a cost-effective manner.

Agencies’ percentage shares are 

based on their prior year 

utilization of voice and data 

telecommunication services.

Actual costs for technical and data 

services are recovered via 

distribution through the WCF.

Telecom Customer Manages and maintains the USDA’s voice Agency percentage shares are

Services Center (TSCS) telephone services in the Washington, DC based on the number of telephone

metropolitan area (WMA); serves as the single point lines in the WMA and the number

(Transitioning to Client of contact for all local requests for telephone of voice mailboxes on the primary

Technology Services in services and purchases; manages and administers node.

FY17 (Core Services)) the nationwide voice mail system; provides

maintenance services for telephone equipment and

voice mail services in the WMA.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 286

Activity Description Cost Distribution

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 percentage share is based 

on current FTEs for the USDA 

facilities serviced by the 

Departmental LAN and e-mail 

usage.

Computer Services Provides LAN, desktop, application, and web Basic services for OSEC are paid

Network Support development support and maintenance to the Office by the Office of the Chief

of the Secretary (OSEC). Information Officer. The cost for

(Transitioning to Client support services to the Under and

Technology Services in Assistant Secretaries are

FY16 (Core Services)) distributed among agencies based

on estimated fiscal year

nationwide FTEs.

Central Forms and Pubs -

Transport Costs

Provides acquisition (printing), warehouse, and 

worldwide distribution of administrative forms and 

publications for all USDA agencies and non-USDA 

agencies; provides warehouse distribution of agency 

programs and publications for all USDA agencies 

and for other participating government agencies.

Based on the most recently 

completed fiscal year.

Copier and Duplicating 

Services (Managed Print 

Services)

Provides centralized copier facilities and equipment 

for employees in the downtown DC buildings 

complex and nearby satellite locations (Riverdale 

Carver Center). A large inventory of 

pool/convenience copiers is distributed throughout 

USDA agency offices in the DC area.

Customers are billed based on a 

three year agency average mail 

count as a percentage of the total 

mail count.

Customers are billed for 

duplicating services based on 

actual usage.

Integrated Procurement 

Services

Develops, implements, and maintains a suite of 

corporate acquisition software tools, streamlining 

processes and an interface with the USDA corporate 

financial system. Provides procurement support to 

USDA agencies.

Cost is distributed based on actual 

agency use of the Integrated 

Acquisition System (IAS), 

SmartPay, and Fleet Credit Cards. 

Customers are billed monthly for 

1/12 of their estimated annual

share of costs.

Central Receiving Pick up and distribution of mail throughout the 

USDA Headquarters Complex and leased facilities 

in the DC Metro area. This also includes distribution 

and pick up of packages, processing Accountable 

mail, Meter outgoing mail from USDA.

Central Mail/Door-to-Door: 

Agency shares are based on mail 

count samples taken by the Mail 

Unit.

Storage of Forms and 

Publications

Provides acquisition (printing), warehouse, and 

worldwide distribution of administrative forms and 

publications for all USDA agencies; provides 

warehouse distribution of agency programs and 

publications for all USDA agencies and for other 

participating government agencies.

Agency shares are based on costs 

of requisitions processed for AD 

and SF forms during the most 

recently completed fiscal year.

Agency shares for agency-specific 

forms are based on square footage

of space for storage of agency 

forms at the warehouse.
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 287

Activity Description Cost Distribution

Central Excess Property 

Operations

Provides customer service and disposition for all 

excess property for USDA and other Federal 

agencies in the WMA under the concept of a 

Cooperative Administrative Support Unit (CASU); 

provides property rehabilitation services in an effort 

to promote utilization of serviceable excess and 

rehabilitated property in lieu of purchasing new 

property.

Agency shares are based on 

agencies FTEs in the WMA; 

verified against the FY16 

Presidents Budget Staff Year 

Disposition Report provided by 

OMB on an annual basis

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.

Central Cost Distribution and Departmental Shared Cost Programs

Central Cost Distribution Programs

USDA agencies pay a share of costs for external programs through “Central Cost Distribution and Departmental 

Shared Cost Programs” 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, transit subsidies, postage, and 

unemployment and workers compensation insurance based on actual costs incurred by individual agencies.

Outside Assessments - Costs such as Office of Personnel Management 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 Shared Cost 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 2016 to FY 2018 Forest Service Central Cost Distribution and Departmental Shared Cost Programs Central 

Cost Distribution Programs

(dollars in thousands)

Central Cost Distribution Programs FY 2016

Enacted

FY 2017

Annualized CR

FY 2018

President’s 

Budget

E-GOV Initiatives $2,594 $1,650 $1,679

Ethics E-Filing 64 64 64

Fair Pay Safe Workplace 17 17 17

Federal Audit Clearing Service 27 27 27

FEMA Emergency Preparedness 131 131 131

Flexible Spending Accounts FSAFEDS - Agency

Specific 64 64 64

Government-wide Council Activities 176 176 176

GSA HSPD12 LincPass Maintenance 1,619 1,619 1,619

National Archives Records System 400 450 450
FY 2018 Budget Justification USDA Forest Service

 

Special Exhibits 288

Central Cost Distribution Programs FY 2016

Enacted

FY 2017

Annualized CR

FY 2018

President’s 

Budget

OPM Credit Monitoring Services 169 8 8

OPM Federal Employee Services and Admin Law

Judges 169 169 169

Transit Subsidy 1,313 1,425 1,425

U.S. Postal Service Mail - Agency specific 90 10 10

Unemployment Compensation 38,496 38,496 38,496

Workers Compensation 29,880 29,880 29,880

Total Central Cost Programs $75,209 $74,205 $74,205

Departmental Shared Cost Programs

Departmental Shared Cost Programs FY 2016

Actuals

FY 2017

Planned

FY 2018

President’s 

Budget

1890 USDA Initiative $993 $1,173 1,056

Advisory Committee Liaison Services (Office of the 

Secretary White House Liaison Office) 262 246 222

Classified National Security Information 220 230 207

Continuity of Operations Planning 628 661 595

Drug Testing Program - Agency Specific 172 153 153

E-GOV Initiatives HSPD-12 (Identity and Access

Management) 2,123 2,105 1,894

Emergency Operations Center 734 732 658

Facility Infrastructure Review & Assessment 136 141 126

Faith-Based Initiatives & Neighborhood

Partnerships 120 125 112

Hispanic Serving Institutions National Program

(Formerly HACU) 552 619 557

Honor Awards 23 24 22

Intertribal Technical Assistance Network 964 956 860

Medical Services 44 51 46

Peoples Garden & Visitors Center 202 205 185

Personnel and Document Security (Personnel

Security Branch) 356 313 281

Preauthorized Funding 1,168 1,158 1,042

Retirement Processor Web Application 182 187 169

TARGET Center (includes Sign Language

Interpreter Services) 452 452 407

USDA 1994 Program (Formerly AIHEC) 216 243 219

USDA Human Resources Transformation 482 549 494

Virtual University 622 620 558

Total Departmental Shared Cost Programs $10,651 $10,943 $9,863
FY 2018 Budget Justification USDA Forest Service 

Budget Authorities 289

Total: Central Cost Distribution Programs Plus Departmental Shared Cost Programs

Central Cost Distribution Programs Plus Departmental 

Shared Cost Programs

FY 2016

Enacted

FY 2017

Annualized 

CR

FY 2018

President's 

Budget

Total Central Cost Distribution and Departmental 

Shared Services Cost Programs $85,860 $85,148 $84,068

The legislative cap for the Departmental Shared Cost Program activities is $14.5 million.

Central Cost Distribution and Departmental Shared Cost Program Activities

Central Cost Distribution Programs & Departmental Shared Cost 

Programs

Activity Description Cost Distribution

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 the Department of Labor 

(Office of Workers Compensation) for employment 

compensation to USDA employees due to on-the 

job injuries.

Distribution based on reconciled 

agency cases and dollars.

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 based on each 

agency’s volume of records 

stored, as well as the percentage 

of Department-wide records 

stored based on nation-wide fees.

Flexible Spending 

Accounts (FSAFEDS) -

Agency

The National Defense Authorization Act, Public 

Law 108-136, signed November 24, 2003, requires 

all Executive Branch agencies that participate in the 

Flexible Spending Accounts for Federal Employees

Program (FSAFEDS) to cover administrative fees 

on behalf of their employees.

The agency cost shares are based 

on the participation level of their 

employees. Agencies are billed

for the operating costs by OPM 

and contract administration by a 

commercial vendor.

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 current 

fiscal year nationwide FTE ceiling 

employment for 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 

employment ceilings in each 

agency.
FY 2018 Budget Justification USDA Forest Service 

Budget Authorities 290

Working Capital Fund, Forest Service

Overview

The Forest Service 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. The 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 appropriation. Initially, regular Forest Service appropriations purchased assets and donated 

the assets to WCF. The WCF rates are determined so that WCF recovers operating and replacement costs. The 

WCF provides the following services:

Equipment Leasing Services, which owns and rents vehicles and aircraft, and

Enterprise Services, which are reinvention teams accomplishing project work that improves customer service 

and reduces costs.

The table below displays the volume of business for major WCF activities:

Volume of Business for Major WCF Activities

(dollars in thousands)

Type FY 2016 FY 2017 FY 2018

Enacted* Enacted*

Pres. Budget 

Estimate.*

Equipment - Fleet $184,990 $197,540 $185,205

Equipment - Aircraft 9,685 15,612 15,027

Nursery 11,235 11,684 12,152

Enterprise Services 42,478 44,177 45,944

Total $248,388 $269,013 $258,328

* FY 2017 Enacted and FY 2018 President’s Budget estimates were calculated using approved 5-year Cash Flow 

statements. Each year the 5-year estimates can change based on specific needs at the time.
FY 2018 Budget Justification USDA Forest Service 

Budget Authorities 291

Budget Authorities

Title of the Act or 

Program

Summary of Authority Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

Reference

Acquisition of 

Lands, Special Acts, 

San Bernardino 

National Forest 

Land Conveyance 

and Settlement

Provides authority for the conveyance 

of a small parcel of public domain 

land in the San Bernardino National 

Forest in the State of California and 

changes the authorization for 

collection and retention of receipts 

first authorized under the Sisk Act 

P.L. 90-171.

NFS P.L. 106-434 16 U.S.C. 484a

Acquisition of 

Lands, Special Acts, 

Ozark and Ouachita 

National Forest 

Land Exchange

Provides authority to the Secretary of 

Agriculture to sell or exchange all or 

part of certain administrative sites and 

other land in the Ozark-St. Francis, 

Ouachita National Forests Nevada, 

Utah, California and Arkansas to use 

funds derived from the sale or 

exchange to acquire, construct, or 

improve administrative sites.

NFS P.L. 108-350

Agricultural Act of 

2014, Insect and 

Disease Infestation

Amends the Healthy Forests 

Restoration Act (HFRA) to require 

designation of an insect and disease 

priority treatment area in at least one 

National Forest per State, if requested 

by the Governor. Treatments in those 

areas may be conducted in accordance 

with the authorities provided for fuels 

treatments in HFRA and also may be 

categorically excluded. Also, 

authorizes $200,000,000 per year for 

these activities through 2024. 

NFS, SPF P.L. 113-79 16 U.S.C. 6591 

et. seq. 

Agricultural Act of 

2014, Forest 

Inventory and 

Analysis (FIA)

Requires the Secretary of Agriculture 

to revise the FIA strategic plan within 

180 days of enactment.

Research P.L. 113-79 16 U.S.C. 

1642(e)

Agricultural Act of 

2014, Forest 

Products Advanced 

Utilization Research

Amends the Agricultural Research,

Extension and Education Reform Act 

of 1998 to add a Forest Products 

Advanced Utilization provision 

requiring the Secretary of Agriculture 

to establish a forestry and forest 

products research and extension 

initiative to develop and disseminate 

science-based tools that address the 

needs of the forestry sector. These 

activities must be carried out in 

coordination with the Forest Service, 

including the Forest Product’s 

Laboratory.

9/30/2018 Research P.L. 113-79 P.L. 89–106; 

P.L. 110–246
FY 2018 Budget Justification USDA Forest Service 

Budget Authorities 292

Title of the Act or 

Program

Summary of Authority Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

Reference

Agriculture Grants 

and Powers Act of 

1965

Provides authority to erect buildings 

and other structures on non-Federal 

land, if long-term lease on the land is 

obtained. Also, provides authority to 

make competitive grants to eligible 

institutions, including special grants 

and grants for facility renovation and 

refurbishment, to further the programs 

of the Department of Agriculture.

Alaska National 

Interest Lands 

Conservation Act of 

1980

This Act authorizes management of 

Federal lands in Alaska for 

subsistence uses of fish and wildlife, 

providing the opportunity for rural 

residents to continue their subsistence 

way of life. This Act also allows that 

receipts from oil, gas, timber, coal, 

and other natural resources collected 

by the Departments of Agriculture and 

the Interior are available to prepare, 

offer, and administer the timber sale 

program on the Tongass National 

Forest. Authorizing up to $5,000,000 

in annual transfers of receipts to a 

special fund.

NFS P.L. 96-487 16 U.S.C. 539d

Anderson-Mansfield 

Reforestation and 

Revegetation Act of 

1949

Requires the agency to accelerate and 

provide a continuing basis for the 

needed reforestation and revegetation 

of national forest lands and other lands 

under Forest Service administration or 

control. This Act authorizes 

appropriations as needed to provide 

for reasonable continuity of 

reforestation and vegetation programs.

NFS P.L. 81-348 16 U.S.C. 

581jArchaeological 

Resources 

Protection Act of 

1979

Authorizes the use of appropriated 

funds for the preservation and 

protection of historical and 

archaeological resources.

NFS P.L. 96-95 16 U.S.C. 469

Arizona National 

Forest Improvement 

Act of 2000

This Act authorizes the Secretary of 

Agriculture to convey certain 

administrative sites 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.

NFS P.L. 106-458 16 U.S.C. 484a

Bankhead-Jones 

Farm Tenant Act of 

1937

Sections 31 and 32 of this Act 

authorize and direct the Secretary of 

Agriculture to develop a program of 

land conservation and land utilization, 

in order to 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 

NFS P.L. 75-210 7 U.S.C. 110-

111; 7 U.S.C. 

1000-1006
FY 2018 Budget Justification USDA Forest Service 

Budget Authorities 293

Title of the Act or 

Program

Summary of Authority Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

Reference

land utilization and conservation 

program. Section 32 also gives the 

Secretary of Agriculture the authority 

to regulate the use and occupancy of 

the property acquired by, or 

transferred to, the Secretary under or 

for the purposes of the BankheadJones Act. This Act authorizes the 

transfer of lands acquired under the 

Act to other Federal, State, or 

Territorial agencies subject to a public 

reverter provision.

Bankhead-Jones 

Farm Tenant Act, 

25 percent of 

revenues to counties

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.

NFS P.L. 75-210 7 U.S.C. 1012

Bend Pine Nursery 

Land Conveyance 

Act

This Act authorizes the Secretary of 

Agriculture to sell or exchange all or 

part of certain administrative sites and 

other NFS land in the State of Oregon 

and use the proceeds derived from the 

sale or exchange for NFS purposes.

NFS P.L. 106-526 16 U.S.C. 

484a; 16 

U.S.C. 480 et 

seq

Black Hills National 

Forest and Rocky 

Mountain Research 

Station 

Improvement Act

This Act authorizes the Secretary of 

Agriculture to sell or exchange all or 

part of certain administrative sites and 

other land in the Black Hills National 

Forest and use funds derived from the 

sale or exchange to acquire 

replacement sites and to acquire or 

construct administrative improvements 

in connection with the Black Hills 

National Forest.

NFS P.L. 106-329 16 U.S.C. 484a

Boise Laboratory 

Replacement Act of 

2000

Authorizes the Secretary of 

Agriculture to sell or exchange the 

Boise laboratory site (as defined by 

this Act), and use the resultant funds 

to acquire land and facilities to: (1) colocate 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.

NFS P.L. 90-171; 

P.L. 106-291

16 U.S.C. 484a
FY 2018 Budget Justification USDA Forest Service 

Budget Authorities 294

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(if applicable)

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Public Law 

Citation

USC 

Reference

Boundary Waters 

Canoe Area 

Wilderness Act of 

1978

Section 18(e) authorizes the 

construction of dispersed recreation 

sites and trails outside the Boundary 

Waters Canoe Area Wilderness. 

Section 7(d)(3) authorizes funding to 

acquire land and water within the 

designated wilderness. Also, see ThyeBlatnik Act of June 22, 1948, as 

amended (16 U.S.C. 577h), cited in 

paragraph 3.

NFS P.L. 95-495 16 USC 1132 

note

Brush Disposal Act 

of August 11, 1916

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.

NFS P.L. 64-190 16 U.S.C. 490

Burton-Santini Lake 

Tahoe Basin Act of 

December 23, 1980

Authorizes the Secretary of 

Agriculture, with the concurrence of 

the Tahoe Regional Planning Agency, 

to acquire specified unimproved, 

environmentally sensitive land to 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. 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.

NFS P.L. 96-586

Carlson-Foley Act of 

1968

This Act authorizes use of noxious 

plant control funds reimburse States 

for such activity on Federal land.

NFS, SPF P.L. 90–583 43 U.S.C. 

1241-1243

Coconino and Tonto 

National Forest 

Land Exchange Act

This Act provides for the exchange of 

five certain parcels of land in the 

Coconino and Tonto National Forests 

in Arizona, and for other purposes.

NFS P.L. 108-190 43 U.S.C. 1701 

et seq.; 43 

U.S.C. 

1716(b); 16 

U.S.C. 484a

Collaborative Forest 

Landscape 

Restoration (CFLR)

The Omnibus Public Land 

Management Act of 2009 authorizes 

the Collaborative Forest Landscape 

Restoration Fund, establishing a 

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. The Act authorizes $40,000,000 

for each of fiscal years 2009 through 

2019, to remain available until 

expended. Actual appropriated 

amounts have varied by year.

9/30/2019 NFS P.L. 111-11 

Title III

16 U.S.C. 7301
FY 2018 Budget Justification USDA Forest Service 

Budget Authorities 295

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Program

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(if applicable)

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Affected

Public Law 

Citation

USC 

Reference

Columbia River 

Gorge National 

Scenic Area Act of 

1986, land 

acquisition 

provisions

Sections 9 and 16a of the Act 

authorizes land acquisition within the 

Columbia River Gorge National 

Scenic Area.

NFS P.L. 99–663 16 U.S.C. 544g

Columbia River 

Gorge National 

Scenic Area Act of 

November 17 of 

1986, establishment

Establishes the Columbia River Gorge 

National Scenic Area in Washington 

and Oregon. Designates special 

management and urban areas within 

such scenic area. 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. 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. Directs the Secretary to 

provide technical assistance to 

counties to develop land use 

ordinances under this Act. 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. 

SPF, NFS P.L. 99-663 16 U.S.C. 544

Commercial Filming The Act of May 26, 2000 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 a schedule to use 

and occupy NFS land for 

filming/photo activities. This fee is 

separate from the cost recovery fee to 

process applications and monitor and 

the authorization for compliance with 

the commercial filming permit.

NFS P.L. 106-206 16 U.S.C. 

460l-6d

Commercial 

Spectrum 

Enhancement Act 

(CSEA)

Title II of this Act created the 

Spectrum Relocation Fund (SRF) to 

provide a centralized and streamlined 

funding mechanism through which 

Federal agencies can recover the costs 

associated with relocating their radio 

communications systems from certain 

spectrum bands, which were 

authorized to be auctioned for 

commercial purposes.

NFS P.L. 108-494
FY 2018 Budget Justification USDA Forest Service 

Budget Authorities 296

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Program

Summary of Authority Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

Reference

Community Forest 

and Open Space 

Conservation 

Program

The 2008 Farm Bill amended the 

Cooperative Forestry Assistance Act 

of 1978 to establish a program to 

provide federal matching grants to 

help local governments, Tribes, or 

nongovernmental organizations 

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.

SPF P.L. 110-246 16 U.S.C. 

2103d

Community Forest 

Restoration Act

Extends authorization to make funds 

available for use on non-Federal lands 

under State and Private Forestry 

appropriation.

WFM P.L. 106-393

Community Wood 

Energy Program

The Agricultural Act of 2014 

authorizes $5,000,000 in annual 

appropriations for a Community Wood 

Energy Program through FY 2018. 

Grants of up to $50,000 to State and 

local governments or biomass 

consumer cooperatives to develop 

plans for, or to acquire or upgrade 

community wood energy systems.

09/30/2018 SPF P.L. 113-79 7 U.S.C. 8113

Comprehensive 

Environmental 

Response, 

Compensation and 

Liability Act of 1980 

(CERCLA)

Forest Service Policy is to use Forest 

Service CERCLA authority and 

processes to respond at sites under 

Forest Service jurisdiction or control 

where hazardous substances, 

pollutants, or contaminants threaten 

human health or the environment. 

Many abandoned mine sites are 

CERCLA sites, since heavy metals 

such as arsenic, cadmium, and others 

that may occur in surface water at 

mine sites are listed as hazardous 

substances. Further, the Forest Service 

may invoke CERCLA at mining sites 

where “pollutants or contaminants” 

such as sediment, or metals such as 

iron or aluminum which are not listed 

hazardous substances, are impacting 

the environment.

NFS P.L. 96-510 42 U.S.C. 9601

Cooperative 

Firefighting Funds 

Retention

Any money collected from the States 

for fire suppression assistance 

rendered by the Forest Service on nonFederal lands not in the vicinity of 

National Forest System lands shall 

hereafter be used to reimburse the 

applicable appropriation and shall 

remain available until expended.

SPF P.L. 105-277 16 U.S.C. 

2106b

Cooperative 

Forestry Assistance 

Act of 1978

Authorizes cooperation and assistance 

to non-Federal forest landowners and 

communities in rural forest 

management, urban and community 

forest management, production of 

SPF P.L. 95-313 16 U.S.C. 

2101-2114
FY 2018 Budget Justification USDA Forest Service 

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Program

Summary of Authority Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

Reference

timber and other forest resources, 

insect and disease control, rural fire 

prevention and control, forest 

management and planning assistance, 

and technology implementation. 

Includes authorization for many State 

and Private Forestry programs, 

including the Forest Stewardship 

Program, the Forest Legacy Program, 

and the Urban and Community 

Forestry Program.

Cooperative 

Forestry Innovation 

Partnership Projects

Allows the Secretary to competitively 

allocate up to 5 percent 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 

percent cost share.

SPF P.L. 110-246 16 U.S.C. 

2101a and 

continuing

Cooperative Funds 

Act of June 30, 1914, 

Forest 

Investigations, 

Protection and 

Improvement

This Act authorizes the acceptance of 

contributions for cooperative work in 

forest investigations, protection, 

management, and improvement of the 

National Forest System.

NFS 16 U.S.C. 498

Cooperative Funds 

Act of June 30, 1914, 

Wildland Fire 

Protection

The Act grants Federal Agencies the 

authority to maintain wildland fire 

protection organizations for 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.

WFM 16 U.S.C. 498

Cooperative Funds 

and Deposits Act

This Act authorizes the Forest Service 

and cooperator(s) to perform work 

from which they would accrue mutual 

non-monetary benefit in the areas of 

cooperative pollution abatement; 

cooperative manpower, job training, 

and development programs; 

development and publication of 

cooperative environmental educations 

and forest history materials; and, 

forestry protection. Authorizes 

cooperation for fire protection for 

public good and where there is mutual 

benefit, other than monetary 

consideration.

WFM P.L. 94-148; 

P.L. 95-313

Cradle of Forestry The Act of July 4, 1968 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 Cradle of Forestry in 

NFS P.L. 90-398 16 U.S.C. 471h
FY 2018 Budget Justification USDA Forest Service 

Budget Authorities 298

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Program

Summary of Authority Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

Reference

western North Carolina. The Secretary 

of Agriculture is authorized to accept 

contributions and gifts to further the 

purposes of the Act. The 6,500-acre 

Cradle of Forestry Historic Site in the 

Pink Beds valley, NC, was established 

by Congress in 1968 and contains the 

first official school for forestry in 

America.

Department of 

Agriculture Grants 

and Powers Act of 

1965

Section 1 authorizes the erection of 

buildings and other structures on nonfederal land, with long-term lease and 

right-to-remove, and authorizes the 

use of appropriations for expenses 

necessary to acquire long-term lease. 

Provides authority for long-term leases 

on non-federal land and building 

structures on non-federal land, if a 

long-term lease on the land is 

obtained.

ALL P.L. 89-106 7 U.S.C. 2250a

Department of 

Agriculture Organic 

Act of 1944

Section 703 authorizes the erection, 

alteration, and repair of buildings and 

other improvements on Federal land 

that are necessary to conduct 

authorized work, provided provision is 

made in applicable appropriations.

CIM P.L. 78-425 7 U.S.C. 2250

Department of 

Agriculture Organic 

Act of 1956

This Act authorizes the acquisition of 

land by purchase, exchange, or other 

means, to 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 P.L. 84-979 7 U.S.C. 428a

Department of 

Agriculture Organic 

Act - Aviation, 

Lookout Towers, & 

Fire Management

Authorizes the Forest Service, by 

contract or otherwise, to provide for 

procurement and operation of aerial 

facilities and services for the

protection and management of the 

national forests and other lands 

administered by the agency.

WFM P.L. 78-425 16 U.S.C. 579a

Eastern Wilderness 

Act of 1975

Sections 6 and 9 authorize the 

acquisition, exchange, and donation of 

land for inclusion in the Eastern 

Wilderness system.

NFS P.L. 93-622 16 U.S.C. 1132 

note

Endangered Species 

Act of 1973

The Endangered Species Act (ESA) 

provides a program for the 

conservation of threatened and 

endangered plants and animals and the 

habitats in which they are found. 

Section 7 requires federal agencies to 

consult with the U.S. Fish and 

Wildlife Service and/or the NOAA 

Fisheries Service to ensure that actions 

they authorize, fund or carry out are 

not likely to jeopardize the continued 

existence of any listed species or 

destroy or adversely modify 

designated critical habitat of such 

NFS P.L. 93–205 16 U.S.C. 1534 

and 1542
FY 2018 Budget Justification USDA Forest Service 

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Program

Summary of Authority Expiration date

(if applicable)

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Affected

Public Law 

Citation

USC 

Reference

species. Sections 5 and 15 authorize 

the acquisition of land to protect 

threatened and endangered species.

Federal Agricultural 

Improvement and 

Reform Act (Forest 

Legacy)

Authorizes grants to States for 

carrying out the Forest Legacy 

Program, including the acquisition by 

the State of lands and interests in 

lands.

SPF P.L. 104-127 16 U.S.C. 

2103c

Federal Agriculture 

Improvement and 

Reform Act of 1996

This Act authorizes the acceptance of 

contributions for cooperative work in 

forest investigations, protection, 

management, and improvement of the 

National Forest System.

NFS P.L. 104-127 16 U.S.C. 498

Federal Highway 

Act

This Act establishes the Federal

Highway Trust Fund, managed by the 

Department of 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.

CIM P.L. 85-767 23 U.S.C. 120, 

125, 205

Federal Land 

Exchange 

Facilitation Act of 

1988

Section 4 of this Act authorizes 

appropriations to consider, process, 

and consummate land exchanges 

pursuant to the Federal Land Policy 

and Management Act of 1976 (43 

USC 1701).

NFS P.L. 100-409 43 U.S.C. 1716

Federal Land 

Transaction 

Facilitation Act

This Act authorizes the Bureau of 

Land Management (BLM) to sell 

parcels of public 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.

07/25/2011 NFS P.L. 106-248; 

P.L. 111-212 

sec. 3007

43 U.S.C. 2301

Federal Lands 

Recreation 

Enhancement Act

This Act provides authority 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-theground 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 to 

allow for public involvement on 

recreation fee programs.

09/30/2018 NFS P.L. 108-447;

P.L. 113-46; 

P.L. 113-164; 

P.L. 113-235;

P.L. 113-235; 

P.L. 114-223

16 U.S.C. 6806 

and 6807

Federal Water 

Project Recreation 

Act, 1965

The Act has provided up to 50 percent 

of the costs of recreation facility 

development at certain reservoirs 

when a non-Federal entity entered into 

an agreement to provide the remaining 

NFS P.L. 89-72 16 U.S.C. 

460L-13
FY 2018 Budget Justification USDA Forest Service 

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Program

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Public Law 

Citation

USC 

Reference

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.

FLAME Act of 2009 The FLAME Act of 2009 states, "...for 

fiscal year 2011 and each fiscal year 

thereafter, the amounts requested by 

the President for a FLAME Fund 

should be not less than the amount 

estimated by the Secretary concerned 

as the amount necessary for that fiscal 

year for wildfire suppression activities 

of the Secretary that meet the criteria 

specified..." The criteria are fires that 

1) cover 300 or more acres, 2) pose 

significant complexity, severity, or 

threat to human life, property, or 

resources.

FLAME P.L. 111-88 43 USC 1701 

note; 43 U.S.C. 

1748a

Florida National 

Forest Land 

Management Act

This Act authorizes the Secretary of 

Agriculture to sell or exchange certain 

parcels of land in the State of Florida, 

and for other purposes.

NFS P.L. 108-152 16 U.S.C. 484a

Food and 

Agriculture Act of 

1977

Designates the U.S. Department of 

Agriculture as the lead agency of the 

Federal 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.

ALL P.L. 95-113 7 U.S.C. 3318-

3319d

Food Security Act of 

1985

Authorizes a conservation acreage 

reserve program, and authorizes the 

Secretary of Agriculture to utilize the 

services of the Forest Service and 

other Federal and State agencies to 

carry out the program.

ALL P.L. 99-198 16 U.S.C. 3842

Food, Agriculture, 

Conservation, and 

Trade Act of 1990

Section 1241 authorizes the Modern 

Timber Bridge Initiative, with an 

authorization of $5,000,000 annually. 

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. Section 

2371 authorizes the establishment of 

and economic development and global 

marketing program, including 

technology transfer to natural 

resource-based industries in the United 

States. The Healthy Forest Initiative 

amended section 2371 the Act to 

create the “Rural Revitalization 

SPF P.L. 101-624 16 U.S.C. 

2106; 7 U.S.C. 

6601; 7 U.S.C. 

6611-6617
FY 2018 Budget Justification USDA Forest Service 

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Program

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(if applicable)

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Affected

Public Law 

Citation

USC 

Reference

Technologies” program, which 

provides for the accelerated adoption 

of technologies in the biomass 

industry. Sections 2372-2379 

authorize economic assistance to rural 

communities in or near national 

forests. 

Forest and 

Rangeland 

Renewable 

Resources Planning 

Act of 1974

Requires preparation of a renewable 

resource assessment, program plans, 

inventories, and budget request, and 

an update to these plans every 10 

years.

ALL P.L. 93-378 16 U.S.C. 1601 

note

Forest and 

Rangeland 

Renewable 

Resources Research 

Act of 1978

The Act authorizes the Forest Service 

to conduct, support, and cooperate in 

investigations, tests, and other 

activities necessary to obtain, analyze, 

develop, demonstrate, and disseminate 

scientific information about forest and 

rangeland renewable resources in 

rural, suburban, and urban areas. It 

authorizes competitive grants and 

advance of funds to cooperators and 

grantees; research encouraging 

improved reforestation of cutover 

lands; and development and 

implementation of improved methods 

of survey and analysis of forest 

inventory information. An amendment 

made under P.L. 101-624 established a 

forestry student grant program for 

minority and female students.

NFS P.L. 95–307; 

P.L. 100-521; 

P.L. 101-624

16 U.S.C. 1641 

- 1648

Forest Botanical 

Products

The Department of the Interior and 

Related Agencies Appropriation Act 

of 2000 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 authorized through 

September 30, 2019, with the funds 

collected available for expenditure 

through September 30, 2020.

09/30/2019 NFS P.L. 106-113; 

P.L. 111-88;

P.L. 113-76

16 U.S.C. 528 

note

Forest Inventory 

Analysis Data 

Privacy

The FY 2000 Interior and Related 

Agencies Appropriations Act added 

Forest Inventory and Analysis (FIA) 

Program to the existing Food Security 

Act of 1985, thus providing a legal 

basis for protecting the privacy of the 

data suppliers. 

R&D P.L. 106-113 7 U.S.C. 2276

Forest Service 

Administration of 

Rights-Of-Way and 

Land Uses (Cost 

Recovery)

This Act provides authority 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. The 

authority allows the Forest Service to 

charge a fee for analysis of special use 

authorizations. The Act originally 

Permanent NFS P.L. 106-113, 

Sec. 331; P.L. 

113-6, Sec. 

1415, 

P.L. 110-161, 

P.L. 113-6; 

P.L. 113-46:

P.L. 113-76

30 U.S.C. 

185(l); 43 

U.S.C. 

1764(g); 16 

U.S.C. 470h–

2(g), 

U.S.C. 497 

note
FY 2018 Budget Justification USDA Forest Service 

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Public Law 

Citation

USC 

Reference

granted the authority until Sept 30, 

2012; the Consolidated and Further 

Continuing Appropriation Act, 2013 

extended the authority until September 

30, 2013. 

Forest Service 

Facility 

Realignment and 

Enhancement Act 

(FSFREA)

This Act provided authority to convey 

unneeded administrative sites and 

retain the proceeds for building 

maintenance, rehabilitation, and 

construction. In addition, projects 

initiated under the pilot authority of 

P.L. 107-63, Section 329 may 

continue under the provisions of the 

FSFREA. The Consolidated 

Appropriations Act of 2012 extended 

the authority to September 30, 2016.

09/30/2016 NFS P.L. 109-54; 

P.L. 111-8; 

P.L. 112-74

16 U.S.C. 580d 

note

Forest Service 

Facility 

Realignment Pilot

The Interior and Related Agencies 

Appropriation Act of 2002 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.

09/30/2008 CIM P.L. 107-63, 

Section 329

Gifts, Donations, 

and Bequests for 

Research

The Act of June 30, 1978 authorizes 

the acceptance and use of donated 

funds for research activities.

R&D P.L. 95-307 16 U.S.C. 1643

Gifts, Donations, 

and Bequests to the 

Department of 

Agriculture

The Act of October 10, 1978 

authorizes agencies within the U.S. 

Department of Agriculture to accept 

donations for non-research activities 

(i.e., land or other real property).

ALL P.L. 95-442 7 U.S.C. 2269

Global Change 

Research Act of 

1990

Establishes the Committee on Earth 

and Environmental Sciences, part of 

the Federal Coordinating Council on 

Science, Engineering, and Technology 

under the Office of Science and 

Technology Policy of the Executive 

Office of the President. Authorizes 

funded participation in the United 

States Global Change Research 

Program as the Forest Service Global 

Change Research Program.

R&D P.L. 101-606 15 U.S.C. 2931

Global Climate 

Change Prevention 

Act of 1990

Establishes a Global Climate Change 

Program at USDA to study the effects 

of global climate change on 

agriculture and forestry. The Program 

Direction shall coordinate policy 

analysis, long range planning and 

research across the Department and 

with other Agencies. The Act also 

establishes the Office of International 

Forestry to be responsible for the 

international forestry activities of the 

Forest Service and establishes the 

Institutes of Tropical Forestry; 

authorizes the creation of a pilot 

project in urban forestry.

09/30/2018 International 

Forestry; 

R&D

P.L. 101-624; 

P.L. 107-171; 

P.L. 110-234, 

sec 8202

7 U.S.C. 6701 

to 6708
FY 2018 Budget Justification USDA Forest Service 

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Program

Summary of Authority Expiration date

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Affected

Public Law 

Citation

USC 

Reference

Good Neighbor 

Authority

The Agricultural Act of 2014 

expanded Colorado Good Neighbor 

Act authority (CGNA) to Puerto Rico 

and all States with National Forest 

System lands (also includes BLMmanaged lands). Through this 

authority, the Secretary of Agriculture, 

via cooperative agreement or contract, 

can permit State agencies to perform 

watershed restoration and forest 

management services on National 

Forest System lands when similar and 

complementary restoration services 

are being performed on adjacent State 

or private lands. 

P.L. 113-79 Not yet 

assigned.

Granger-Thye Act 

of April 24, 1950

This Act authorizes cooperation with 

other parties to perform work for 

permittees, agencies, organizations, 

and persons for work that the Forest

Service is authorized to do, on lands of 

the United States. Also allows for 

research funds to be advanced to 

cooperators. Authorizes assistance for 

work on lands other than Forest 

Service jurisdictions.

ALL P.L. 81-478 16 U.S.C. 572

Grazing Permits The terms and conditions contained in 

the expired, transferred, or waived (or 

renewed prior to 2004) permit or lease 

shall continue in effect under the 

renewed permit 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 canceled, suspended 

or modified, in whole or in part, to 

meet the requirements of such 

applicable laws and regulations.

09/30/2016 NFS P.L. 108-108, 

Sec. 325; P.L. 

111-88; P.L. 

112-74;

P.L. 113-46;

P.L. 113-76; 

P.L. 114-113

43 U.S.C. 1752

Grey Towers 

National Historic 

Site Act of 2004

Creates permanently available Grey 

Towers National Historic Site Fund. 

The Secretary is authorized to enter 

into agreements for grants, contracts, 

and cooperative agreements as 

appropriate with the Pinchot Institute, 

public and other private agencies, 

organizations, institutions, and 

individuals to provide for the 

development, administration, 

maintenance, or restoration of land, 

facilities, or Forest Service programs 

at Grey Towers or to otherwise further 

the purposes of this section. 

NFS P.L. 108-447, 

Sec. 348

16 U.S.C. 461 

note

Hardwood 

Technology 

Transfer and 

Applied Research

This Act establishes the Institute of 

Hardwood Technology Transfer and 

Applied Research in Princeton, West 

Virginia, previously named the Robert 

C. Byrd Hardwood Technology Center 

SPF P.L. 106-113 16 U.S.C. 1650
FY 2018 Budget Justification USDA Forest Service 

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USC 

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in West Virginia. Certain revenues 

shall be deposited into a special 

Treasury fund to be available for 

obligation until expended.

Hawaii Tropical 

Forestry Recovery 

Act of 1992

This Act grants authorities to the 

Secretary of Agriculture to treat 

invasive plants on Federal and nonFederal ownerships in Hawaii and in 

tropical forests on Federal lands in 

other States.

SPF, 

International 

Forestry

P.L. 102-574 16 U.S.C. 

4505a, 4503

Healthy Forests 

Restoration Act 

(HFRA) of 2003

Title I of HFRA provides for 

expedited environmental review, a

pre-decisional Forest Service 

administrative review process, and 

other measures on National Forest and 

Bureau of Land Management (BLM) 

lands that are at-risk of catastrophic 

fire. Titles II through VI authorize 

various forest health restoration 

programs, including promoting the use 

of woody biomass, creating the Health 

Forest Reserve Program, and 

providing watershed forestry 

assistance.

ALL P.L. 108-148; 

P.L. 110-246

portions of 16 

U.S.C. 6501 -

18 and 16 

U.S.C. 6541-

6591

Herger-Feinstein 

Quincy Library 

Group Forestry 

Recovery Act

This Act authorizes the Secretary of 

Agriculture to conduct a pilot program 

to demonstrate the effectiveness of the 

resource management activities 

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.

09/30/2012 NFS P.L. 105–

277; P.L. 

110-161, Sec 

434

16 U.S.C. 2104 

note

Historic 

Preservation Act of 

1966

This Act authorizes use of 

appropriated funds for the preservation 

and protection of historical and 

archaeological resources.

NFS P.L. 89-665 16 U.S.C. 470

Historic 

Preservation Act of 

1966, Preservation 

of Historical and 

Archaeological Data

These Acts authorizes use of 

appropriated funds for the preservation 

and protection of historical and 

archaeological resources and 

protection of archaeological data.

NFS P.L. 93-291; 

P.L. 96-95; 

P.L. 106-355

16 U.S.C. 

sections of 

both 460 and 

470

Illinois Land 

Conservation Act of 

1995

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.

NFS P.L. 104-106 16 U.S.C. 1609 

note
FY 2018 Budget Justification USDA Forest Service 

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USC 

Reference

Illinois Land 

Conservation Act of 

1995, Midewin 

National Tallgrass 

Prairie creation

Established the Midewin National 

Tallgrass Prairie in Illinois, to be 

managed as part of the National Forest 

System. This Act also authorized the 

conversion of Joliet Army 

Ammunition Plant to the Midewin 

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.

NFS P.L. 104-106 16 U.S.C. 

1609; 16 

U.S.C. 698u

Illinois Land 

Conservation Act of 

1995, special use 

authorizations

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.

NFS P.L. 104-106 16 U.S.C. 1609 

note

International 

Forestry 

Cooperation Act of 

1990

Authorizes support (including 

cooperation, financial, and technical 

assistance, without reimbursement) for 

international forestry and related 

natural resource activities outside the 

United States and its territories. 

Authorizes expansion of the research 

capabilities of the Institute of Tropical 

Forestry in Puerto Rico. 

International 

Forestry

P.L. 101-513; 

P.L. 102-574

16 U.S.C. 4501

Interpretive 

Associations

(FS Partnership 

Agreements)

Authorizes the Secretary of 

Agriculture may enter into an 

agreement with a Federal, Tribal, 

State, or local government or a 

nonprofit entity to develop, produce, 

publish, distribute, or sell educational 

and interpretive materials and products 

and other purposes. 

09/30/2019 P.L. 94-148:

P.L. 113-76

16 U.S.C. 

565a-1

Job Corps Comptroller General Decision B215842, dated June 25, 1986, (65 

Comp.Gen.666). In accordance with 

this Comptroller General Decision Job 

Corps reimbursable authority is 

restricted to the activities of 

collections from non-students for 

meals in the students’ dining hall and 

collections from students for lost 

and/or damaged tools and clothing.

NFS

KnutsonVandenberg Act of 

June 9, 1930

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 use of 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 for work 

NFS P.L. 71-319; 

P.L. 94-588; 

P.L. 109-54

16 U.S.C. 576b
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on the sale area, on other areas in the 

same Forest Service region.

Lake Tahoe 

Restoration Act

This Act enables the Forest Service to 

plan and implement environmental 

restoration 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.

09/30/ 2023 NFS P.L. 106-506

Land Acquisition 

Act of March 3, 

1925

This Act authorizes the purchase of 

land for administrative sites and 

acceptance of donations of land when 

no suitable 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. 68-575; 

P.L. 85–464

16 U.S.C. 555

Land and Facilities 

Conveyance 

(Realignment)

CONVEYANCES AUTHORIZED.—

In the manner provided by this title, 

the Secretary may convey an 

administrative site, or an interest in an 

administrative site, that is under the 

jurisdiction of the Secretary. The 

conveyance of an administrative site 

under this title may be made—(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.

9/30/2016 NFS, CIM P.L. 109-54 

P.L.1 11-8 

P.L. 112-74 

16 U.S.C. 

580d 

Land and Water 

Conservation Fund 

Act of 1965

Created by Congress in 1964, the 

Land and Water Conservation Fund 

(LWCF) provides money to Federal, 

State, and local governments to 

purchase land, water and wetlands for 

the benefit of all Americans. The Fund 

receives money from fees paid by 

companies drilling offshore for oil and 

gas. Other funding sources include the 

sale of surplus Federal real estate and 

taxes on motorboat fuel.

9/30/2018 NFS P.L. 113-287

P.L. 114-113

54 U.S.C. 2003

Land Between the 

Lakes Protection 

Act of 1998

This Act establishes the Land Between 

the Lakes (LBL) Trust Fund and the 

LBL Management Fund. In 

accordance with Title V of the Act, 

responsibility for the LBL National 

Recreation Area in Kentucky and 

Tennessee transferred from the 

Tennessee Valley Authority (TVA) to 

the Secretary of Agriculture. The Act 

directed the Tennessee Valley 

Authority to deposit into the LBL 

Trust Fund $1,000,000 for five years, 

to be available until expended. The 

Act also authorizes the Forest Service 

to retain certain recreation revenue 

receipts from the Land Between the 

Lakes National Recreation Area, to be 

NFS P.L. 105-277, 

Title V of 

Sec. 101 - e

16 USC 460III 

(Chapter 1, 

subchapter 

CXXIII)
FY 2018 Budget Justification USDA Forest Service 

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(if applicable)

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Public Law 

Citation

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Reference

deposited into the LBL Management 

Fund to be available for obligation 

until expended.

McIntire-Stennis 

Act of 1962

Authorizes the Secretary of 

Agriculture to cooperate and assist 

State colleges and universities in 

forestry research on a matching funds 

basis. 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.

R&D and 

SPF

P.L. 87-788; 

P.L. 101-624

16 U.S.C. 582a 

and 582a-1-

582a-7

Mineral Materials 

Act of 1947

This Act provides authority to: (a) 

dispose of mineral material and (b) 

approve and issue permits to explore 

and develop oil and gas leases.

NFS P.L. 80-291 30 U.S.C. 226, 

601-602, and 

611

Mississippi National 

Forest Improvement 

Act of 1999

Authorizes the Secretary of 

Agriculture to sell or exchange U.S. 

right, title, and interest in and to 

specified lands in Mississippi. Makes 

proceeds from such sales or exchanges 

available for the construction of a 

research laboratory and office at the 

Forest Service administrative site at 

Mississippi State University at 

Starkville, Mississippi; the acquisition, 

construction, or improvement of 

administrative facilities in connection 

with National Forest System units in 

the State; and the acquisition of land 

and interests in land for units of the 

NFS in the State. 

NFS P.L. 106–113 7 U.S.C. 1281 

Note

Multiple-Use 

Sustained-Yield Act 

of 1960

Clarifies forest lands are to be 

administered for outdoor recreation, 

range, timber, watershed, wildlife, and 

fish. Authorized and directed the 

development and administration of the 

renewable surface resources of the 

National Forests for multiple use and 

sustained yield of the several products 

and services obtained there from.

NFS P.L. 86-517 16 U.S.C. 528 

note

Mutually Beneficial 

Agreements

Established permanent authority for 

the Forest Service to enter in to 

mutually beneficial agreements with 

public or private agencies, 

organizations, institutions, or persons. 

Exempts watershed restoration and 

enhancement agreements and 

agreements under the first section of 

P.L. 94-148 from Chapter 63 of Title 

31, United States Code.

ALL P.L. 111-11, 

sec. 3001

16 U.S.C. 1011
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Program

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(if applicable)

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Affected

Public Law 

Citation

USC 

Reference

National and 

Community Service 

Act of September 

21, 1993

Authorizes the Secretary to enter in to 

contracts or cooperative agreements 

with any qualified youth or 

conservation corps for completion of 

conservation work.

NFS P.L. 103-82 42 U.S.C. 

12501, 12572-

12681

National Forest 

Management Act 

(NFMA) of 1976

The NFMA requires that the Forest 

Service prepare and revise at fifteenyear intervals a land management plan 

(LMP) for each national forest to 

provide for multiple use and sustained 

yield of the products and services 

obtained from the forest. NFMA also 

establishes restrictions on timber 

harvest, such as provisions that harvest 

can only occur where soil, slope or 

other watershed conditions will not be 

irreversibly damaged. The Act directs 

the Secretary to develop regulations to 

set out the process for the 

development and revision of land 

management plans.

NFS P.L. 94-588 16 U.S.C. 472a

National Forest 

Roads and Trails 

Act of 1964

This Act authorizes the acquisition, 

construction, and maintenance of 

National Forest System roads and 

trails. Also authorizes the construction 

of roads using cooperative financing 

from other agencies.

CIM P.L. 88-657 16 U.S.C. 532-

538

National Forest Ski 

Area Permit Act of 

1986

The Act authorizes the issuance of 

permits for use and occupancy of 

suitable lands within the National 

Forest System for construction and 

maintenance of buildings, 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.

NFS P.L. 99-522 16 U.S.C. 497 

and 497b

National Forest 

System Drug 

Control Act of 1986

Authorized the Secretary of 

Agriculture to prevent and control 

drug abuse on National Forest System 

lands, including investigative powers 

beyond the exterior boundaries of the 

National Forest System. For 

employment, equipment, facilities, 

training, and cooperative programs, 

$10 million annually.

LEI P.L. 99-570 16 U.S.C. 559b 

note, 559b559g

National Trails 

System Act of 1968

Sections 7 and 10 authorize the 

acquisition, exchange, and donation of 

land for the National Trails System 

and for development, management, 

and volunteer assistance on the 

system.

CIM P.L. 90–543 16 U.S.C. 

1241-1251

Organic 

Administration Act 

of 1897

The Act provides authority for the 

administration, protection, and 

management of the National Forests, 

for the purposes of improving and 

protecting the forest, securing 

favorable conditions of water flows, 

and to furnish a continuous supply of 

NFS, WFM 16 U.S.C. 473-

478, 479-482, 

and 551
FY 2018 Budget Justification USDA Forest Service 

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Program

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(if applicable)

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Affected

Public Law 

Citation

USC 

Reference

timber for the use and necessities of 

citizens of the United States. The Act 

also directs the Secretary of 

Agriculture to protect National Forests 

against destruction by fire and 

depredations. 

Organizational 

Camp Fees

The Consolidated Appropriations 

Resolution, 2003 provides authority to 

establish a land use fee system for the 

occupancy and use of NFS lands by 

organizational camps that serve young 

people or individuals with a disability.

NFS P.L. 108-7

Payment for 

Receipts for Schools 

and Roads

The Act of May 23, 1908, as amended, 

commonly known as “Payments to 

States”, authorizes annual payments 

on 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.

P.L. 60-136 16 U.S.C. 500

Pest and Disease 

Revolving Loan 

Fund

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.

SPF P.L. 110-246 16 U.S.C. 

2101a and 

continuing

Pipelines Act of 

1920, Mineral 

Leasing Act

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.

NFS P.L. 66-146 30 U.S.C. 185

Private Schooling, 

Puerto Rico

Funds available to the Forest Service 

may be used for the purpose of 

expenses 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.

09/30/2019 ALL P.L. 108-447; 

P.L. 109-54; 

P.L. 111-88;

P.L. 113-76

Private Schooling, 

Puerto Rico

Funds available to the Forest Service 

may be used for the purpose of 

expenses 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.

09/30/2019 ALL P.L. 108-447; 

P.L. 109-54; 

P.L. 111-88;

P.L. 113-76

Private Schooling, 

Puerto Rico

Funds available to the Forest Service 

may be used for the purpose of 

expenses associated with primary and 

09/30/2019 ALL P.L. 108-447; 

P.L. 109-54; 

P.L. 111-88;
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Public Law 

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USC 

Reference

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.

P.L. 113-76

Quinault Special 

Management Area

The Act of November 8, 1968 

establishes the “Quinault Special 

Management Area” from part of the 

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.

NFS P.L. 100-638

Reciprocal Fire 

Protection Act, Fire 

Protection 

Agreements and 

Mutual Aid 

Agencies

Authorizes agreements between 

agencies of the United States 

Government and other domestic 

agencies, including State and local 

entities and instrumentalities for 

mutual aid in fire protection and 

allows for reimbursements for costs 

incurred by the Department of 

Agriculture for fire protection 

rendered to be credited to the same 

appropriation or fund from which the 

expenses were paid.

WFM P.L. 84-46; 

Not yet 

assigned.

42 U.S.C. 

1856a-d; 

Not yet 

assigned.

Reforestation Trust 

Fund

The Recreational Boating Safety and 

Facilities Act establishes the 

Reforestation Trust Fund which 

receives monetary resources through 

an annual warrant from Treasury, of 

monies received for certain customs 

duties and tariffs. No more than 

$30,000,000 may be deposited 

annually. 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. 96-451 16 U.S.C. 

1606a

Research Facilities 

Act of 1963

This Act authorizes support for 

agricultural research (including 

forestry) at eligible 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.

R&D P.L. 88-74; 

P.L. 95-113; 

P.L. 99-198

7 U.S.C. 390 -

390c

Research Grants 

Act of 1958

Provides, to agencies authorized to 

enter into contracts for basic scientific 

research with nonprofit institution and 

organizations, authority to make 

grants to such institutions and 

organizations; title to equipment 

purchased with such grants being 

vested with the nonprofit organization 

R&D P.L. 85-934 42 U.S.C. 

1891-1893
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Reference

or institution. Such sums as are 

necessary; no expiration date.

Resource 

Conservation and 

Recovery Act 

(RCRA)

An Act to provide technical and 

financial assistance for the 

development of management plans 

and facilities for the recovery of 

energy and other resources from 

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. 

ALL P.L. 94-580 42 U.S.C. 6901

Resource 

Management 

Timber Receipts

The 1990 Appropriations Act made 

excess receipts from timber sales 

available for support costs of National 

Forest System programs as follow: 6 

percent for trail maintenance, 4 

percent for trail construction, 20 

percent for wildlife and fish habitat 

management, 20 percent for soil, 

water and air management, 5 percent 

for cultural resource management, 5 

percent for wilderness management, 

10 percent for reforestation and 30 

percent for timber sale administration 

and management. No excess receipts 

were generated after 1989 and the 

balance of this fund was expended in 

FY 2012.

Does not expire 

but there have 

been no excess 

receipts 

generated since 

1989; final 

funds spent in 

FY 2012.

NFS P.L. 101-121

Restoration of 

National Forest 

Lands and 

Improvements Act

This Act authorizes establishment of a 

fund for improvement, protection, or 

rehabilitation of National Forest 

System lands. This fund receives 

monies from (a) a forfeiture of a bond 

or deposit by a permittee or timber 

purchaser (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. 

NFS P.L. 85-464 16 U.S.C. 579c

Retention of 

Receipts, Omnibus 

Budget 

Reconciliation Act 

of 1993

This Act authorizes the Forest Service 

to retain 15 percent of certain 

recreation receipts to defray the costs 

of collecting those receipts.

NFS P.L. 103-66 16 U.S.C. 

460i-6c, 16 

U.S.C. 500, 16 

U.S.C. 460

Rights-of-Way for 

Highways

Forest highways are generally 

constructed by the FHWA and then 

transferred to State ownership and 

CIM P.L. 85-767 23 U.S.C., 

Sections 
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control. This act authorizes 

appropriate transfer, to States, 

National Forest System lands for 

highway rights-of-way.

107(d), 204(f) 

and 317

Roads and Trails for 

States (Ten percent 

fund)

Act of March 4, 1913, as amended, 

commonly known as “Ten-percent 

Roads and Trails”, authorizes 10 

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.

NFS P.L. 62-430 16 U.S.C. 501

Roads and Trails for 

States (10 Percent) 

Fund), transfer to 

Treasury

The Department of the Interior 

Appropriations Act of 2010 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.”

NFS P.L. 111-88 16 U.S.C. 501

Robert S. Kerr 

Memorial 

Arboretum and 

Nature Center

The Act of June 6, 1968 authorizes the 

Secretary of Agriculture to cooperate 

with, and receive the cooperation of, 

agencies, 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.

NFS P.L. 90-327 16 U.S.C. 

693b-d

Rogue River 

Conveyance and 

Improvement Act

This Act authorizes the Secretary of 

Agriculture to convey the 

administrative site for 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. 105-282

Rural Communities 

Technical Assistance

Starting in FY 1993, the 

Administrative or General Provisions 

language of the Interior 

Appropriations Act allows employees 

to interact with and provide technical 

assistance to rural communities for 

sustainable rural development outside 

the boundaries of National Forest 

System lands.

NFS P.L. 102-381

Rural Revitalization 

Technologies

Authorizes $5,000,000 in annual 

appropriations for forestry rural 

revitalization technologies to: (A)

09/30/2018 SPF P.L. 110-246;

P.L. 113-79 

7 U.S.C. 6601
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Public Law 

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accelerate adoption of technologies 

using biomass and small-diameter 

materials; (B) create community-based 

enterprises through marketing 

activities and demonstration projects; 

and (C) establish small-scale business 

enterprises to make use of biomass 

and small-diameter materials.

Secure Rural 

Schools and 

Community SelfDetermination Act 

of 2000

This Act, originally authorized 

through FY 2006 as P.L. 106-393, 

provides choices to counties to either 

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, or 

to receive payments under the Act of 

May 23, 1908. The Act was 

reauthorized through FY 2011 on 

October 3, 2008 in P.L. 110-343, 

Division C, Title VI. It was then 

reauthorized through FY 2012 on July 

6, 2012 in P.L. 112-141 with some 

changes to funding levels, and 

reauthorized through FY 2013 by P.L. 

113-40. Section 524 of P.L. 114-10 

reauthorized SRS for two years, with 

the final payment for FY 2015 being 

made in January 2016.

09/30/2015 P.L. 106-393; 

P.L. 110-343; 

P.L. 112-141; 

P.L. 113-30

P.L. 114-10

16 U.S.C. 500 

note; 16 U.S.C. 

7101 et seq

Service First The Secretaries of the Interior and 

Agriculture, subject to annual review 

of Congress, may establish pilot 

programs involving the land 

management agencies referred to in 

this section to conduct projects, 

planning, permitting, leasing, 

contracting and other activities, either 

jointly or on behalf of one another.

ALL P.L. 106-291; 

P.L. 109-54; 

P.L. 111-8; 

P.L. 112-74

43 U.S.C. 

1703:

43 U.S.C. 1701 

note

Shasta Trinity 

Marina Permit Fee 

Collection

A permit fee 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 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.

9/30/2019 NFS P.L. 110-161;

P.L. 111-88;

P.L. 113-76

16 U.S.C. 497; 

16 U.S.C. 6807

Sisk Act of 1971 This Act authorizes cooperation with 

States and political subdivisions in 

enforcement of State and local laws on 

National Forest System lands, and 

reimbursement of States and political 

NFS, SPF P.L. 92-82 16 U.S.C. 551a
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subdivisions for expenditures incurred 

in such activities.

Small Tracts Act of 

January 12, 1983

This Act authorizes the sale, 

exchange, or interchange of National 

Forest System lands of forty acres or 

less and of $150,000 or less in value.

NFS P.L. 97-465 16 U.S.C. 521d

Soil and Water 

Resources 

Conservation Act of 

1977

This Act authorizes cooperation in soil 

and water resource appraisal and 

conservation. 

12/31/2018 ALL P.L. 95-192; 

P.L. 110-246

16 U.S.C. 

2008-9

Southern Nevada 

Public Land 

Management Act of 

1998

This Act authorizes proceeds from the 

sale of public lands in Southern 

Nevada to be used to acquire 

environmentally sensitive lands in the 

State of Nevada. Lands acquired that 

are within the boundaries of a unit of 

the NFS, become part of that unit.

NFS P.L. 105-263 31 U.S.C. 6901

Southwest Forest 

Health and Wildfire 

Prevention Act of 

2004, Ecological 

Restoration 

Institutes

Establishes institutes to demonstrate 

and promote the use of adaptive 

ecosystem management to reduce the 

risk of wildfires, and restore the health 

of fire-adapted forest and woodland 

ecosystems of the interior west. If the 

Secretary determines that an Institute 

does not qualify for further Federal 

assistance under this Act, the Institute 

shall receive no further Federal 

assistance under this Act until such 

time as the qualifications of the 

Institute are reestablished. Authorizes 

$15 million annually.

WFM P.L. 108-317 16 U.S.C. 

6701-6707

State and Private 

Forestry Redesign

Allows for a portion of CFAA funds, 

determined by the Secretary, to be 

competitively allocated to State 

Forestry agencies. No new 

authorization of appropriations.

SPF P.L. 110-246 16 U.S.C. 

2101a and 

continuing

State-wide 

Assessment and 

Strategies for Forest 

Resources

Authorization of appropriations for 

State-wide assessment and strategies 

for forest resources. Authorizes 

$10,000,000 in annual appropriations 

for State-wide assessments of forest 

resource conditions. Plans must be 

submitted by May 22, 2010 for a State 

to be eligible to receive funds under 

the authorities of the Cooperative 

Forestry Assistance Act of 1978 (P.L. 

95-313), as amended. Additionally, 

the Secretary may use any other funds 

made available in the FY 2008 farm 

bill for planning, not to exceed 

$10,000,000 per fiscal year. Annual 

reports from the States on the use of 

funds are required.

09/30/2018 SPF P.L. 110-246 16 U.S.C. 

2101a

Stewardship 

Contracting

This Act authorizes the Forest Service 

to enter into stewardship projects via 

agreement or contract to perform 

services to achieve land management 

goals and meet local and rural 

community needs. The Agricultural 

NFS P.L. 108-7;

P.L. 113-46;

P.L. 113-76; 

P.L. 113-79
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Act of 2014 made this authority 

permanent.

Terry Peak Land 

Transfer Act of 1999

This Act requires the conveyance of 

certain National Forest System lands 

at the Terry 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.

NFS P.L. 106-138 16 U.S.C. 

497b; 16 

U.S.C. 484a; 

16 U.S.C. 521

Texas National 

Forests 

Improvement Act of 

2000

To authorize the Secretary of 

Agriculture to convey certain 

administrative sites for 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.

NFS P.L. 106-330 16 U.S.C. 484a

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 characterlicensing collection agreements with 

merchandisers.

P.L. 82-359 16 U.S.C. 

580p-2; 18 

U.S.C. 711

Thye-Blatnik Act of 

June 22, 1948, 

Boundary Water 

Canoe Area 

Wilderness

The Act established the Boundary 

Waters Canoe Area in the Superior 

National Forest and subsequently 

revised the designation and boundaries 

to the Boundary Waters Canoe Area 

Wilderness (BWCAW) and Mining 

Protection Area.

NFS P.L. 87–351; 

P.L. 94–384

16 U.S.C. 577h

Thye-Blatnik Act of 

June 22, 1948, 

Payments to 

Minnesota Counties

This Act, commonly known as 

“Payments to Minnesota Counties”, 

authorizes 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 

paragraph 1), shall not be applicable to 

the national forest land to which this 

Act applies.

NFS P.L. 87–351; 

P.L. 94–384

16 U.S.C. 577g

Timber Salvage 

Sales (authorized by 

NFMA)

NFMA 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 

NFS P.L. 94-588 16 U.S.C. 472a 

(h)
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harvesting of salvage timber. Funds 

are available until expended.

Timber Purchaser 

Elect (authorized by 

NFMA)

NFMA authorizes 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 P.L. 94-588 16 U.S.C. 472a

Timber Roads, 

Purchaser Election

The Department of the Interior 

Appropriations Act of 1999 authorizes 

small business timber purchasers to 

elect to pay the Forest Service to 

construct or reconstruct 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.

NFS P.L. 105-277 16 USC 535a

Timber Roads, 

Purchaser Election 

Construction 

Program

This Department of the Interior 

Appropriations Act of 2008 authorized 

the use of $15,000,000 from current 

balances of the Purchaser Election 

Fund for vegetative treatments.

NFS P.L. 110-161

Timber Sale 

Pipeline Restoration 

Fund

The Department of the Interior and 

Related Agencies Appropriation 

Action of 1996 authorized the 

Secretary of Agriculture to collect and 

deposit revenues from a specific set of 

timber sales. The sales, known under 

the program as first generation sales, 

had been suspended legally for various 

environmental reasons and were 

released under P.L. 104-19, [title II, 

Sec. 2001(k)], July 27, 1995. The 

revenues are to be used to prepare 

timber sales and addressing the 

backlog of recreation projects. 

Revenues from the sale of timber 

prepared using these funds are also 

deposited into this fund and are 

available for preparation of additional 

timber sales and recreation backlog 

projects.

NFS P.L. 104-134 16 U.S.C. 1611 

note

Timber Sale 

Pipeline Restoration 

Fund, Office of 

General Counsel 

opinion

Office of General Counsel Opinion 

dated December 13, 2002. This 

opinion states that timber sales under 

the Timber Pipeline Restoration 

program must use sales receipts for 

payments to States before net receipts 

are deposited into the Timber Sale 

Pipeline Restoration Fund.

NFS

Tongass Timber 

Reform Act of 1990

This Act established the Tongass 

Timber Supply Fund with related 

appropriations to finance the 

consistent supply of saw timber from 

NFS P.L. 101-626 16 U.S.C. 539d
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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.

Transfer of funds to 

BLM for Wild 

Horse and Burro 

and Cadastral 

surveys

Authorization to transfer up to 

$10,000,000 from the National Forest 

Systems appropriation to BLM for 

removal, preparation, and adoption of 

excess wild horses and burros from 

NFS lands, and for cadastral surveys.

NFS P.L. 108-447; 

P.L. 111-88;

P.L. 113-76

Transfer of 

funds to BLM 

for Wild Horse 

and Burro and 

Cadastral 

surveys

Treasury and 

General 

Government 

Appropriations Act, 

2002

This Act authorizes Federal agencies 

to receive and use revenue resulting 

from waste prevention and recycling 

programs. Such revenue shall be 

available until expended for the 

purpose of waste reduction, prevention 

and recycling. The FS uses this 

authority for its "Go Green" program 

in which funds are collected from 

recycling and can be used to 

accomplish clean-up activities on the 

unit.

ALL P.L. 107-67 

Title VI

Treatment of 

Contributions of 

Volunteers

The Forest Service may consider the 

value of services performed by person 

who volunteer their services to the 

Forest Service and who are recruited, 

trained, and supported by a cooperator 

as an in-kind contribution of the 

cooperator for purposes of any cost 

sharing requirement under any Forest 

Service authority to enter into mutual 

benefit agreements.

9/30/2019 ALL P.L. 113-76

Trust Fund 

Authorization

Section 1321 of Title 31 of the United 

States Code authorizes Trust Funds.

NFS 31 U.S.C. 1321

U.S. Mining Laws 

Act of May 10, 1872

This Act governs mining activities for 

valuable minerals on public domain 

lands.

ALL 30 U.S.C. 22 

and 28

Use and Occupancy 

Permits Act of 1915

To permit the use and occupancy of 

areas for the purpose of constructing 

or maintaining hotels, resorts, summer 

homes, commercial purposes, and 

other structures. (Note: There are 

special provisions under P.L. 99-522 

for ski areas).

NFS P.L. 63-293 16 U.S.C. 497

Use of Funds for 

Program 

Information 

Purposes and for 

Nonmonetary 

Awards

Hereafter, any appropriations or funds 

available to the Forest Service may be 

used to disseminate program 

information to private and public 

individuals and organizations through 

the use of nonmonetary items of 

nominal value. This act also provides 

for nonmonetary awards of nominal 

value and to incurring of necessary 

expenses for the nonmonetary 

recognition of private individuals and 

organizations making contributions to 

Forest Service programs.

P.L. 105-277 16 U.S.C. 556h
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Valles Caldera 

Preservation Act of 

July 25, 2000

This Act authorizes the Valles Caldera 

Trust to receive and collect funds in 

support of the management and 

administration of the Preserve.

Pursuant to the 2015 Defense 

Authorization Act, the Valles Caldera 

Preserve will be transferred to the 

management of the National Park 

Service in FY 2015. Any unobligated 

balances in the fund after the transfer 

is complete will be transferred to the 

Department of the Interior. 

NFS P.L. 106-248 16 U.S.C. 

698v-4, 698v-6

Virginia Land 

Conveyance and 

Improvement Act

Authorizes the sale or exchange of all 

or parts of certain administrative sites 

and other lands in the George 

Washington National Forest and the 

Jefferson National Forest. Authorizes 

the use of sale revenue to acquire a 

replacement site and to construct on 

the site suitable improvements for 

national forest administrative 

purposes.

NFS P.L. 105-171 16 U.S.C. 484a

Watershed 

Restoration and 

Enhancement 

Agreements

Appropriations for the Forest Service 

may be used by the Secretary of 

Agriculture for the purpose of entering 

into cooperative agreements with 

willing Federal, tribal, State and local 

governments, private and nonprofit 

entities and landowners for the 

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.

ALL P.L. 105-277 

Sec. 323; P.L. 

111-11 Sec. 

3001

16 U.S.C. 1011 

note

Weeks Act of 1911 Sections 1 and 2 authorize land 

acquisition for watershed protection 

and timber production. One of the 

primary authorities for land 

acquisition with Land and Water 

Conservation Fund moneys.

NFS P.L. 61-435 16 U.S.C. 516, 

521b

Wild and Scenic 

Rivers Act of 1968

Sections 6 and 16 authorize land 

acquisition, exchange, and donation of 

land for inclusion in the Wild and 

Scenic River System.

NFS P.L. 90–542 16 U.S.C. 1277

Wilderness Act of 

1964

Sections 5 and 6 provide authority for 

acquisition, exchange, and donation of 

land for inclusion in the Wilderness 

System.

NFS P.L. 88-577 16 U.S.C. 

1131-1136

Wildfire 

Suppression Act

This Act authorizes reciprocal 

agreements with foreign fire 

organizations for mutual aid in 

wildfire protection.

WFM P.L. 101-11 42 U.S.C. 

1856m note

Youth and 

Conservation Corps 

activities

Together, the Public Lands Corps Act 

of 1993 and the Public Lands Corp 

Healthy Forest Restoration Act of 

NFS P.L. 109-154 16 U.S.C. 1701 

- 1730
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2005 provide for the conduct of

projects that protect forests, and for 

other purposes by qualified youth or 

conservation corps up to $12 million 

per year.