2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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2020USDAEXPLANATORY NOTES –FOREST SERVICE

Agency-Wide.................................................................................................................................................................1

Budget Overview ......................................................................................................................................................1

Administrative Provisions (including Transfers of Funds) .......................................................................................3

General Provisions (including Transfers of Funds) ..................................................................................................5

Purpose Statement.....................................................................................................................................................9

Lead-Off Tabular Statement ...................................................................................................................................11

Four-Year Summary of Appropriations..................................................................................................................12

Four-Year Summary of Staff Years (SY) ...............................................................................................................15

Revenue, Receipts and Transfers............................................................................................................................17

Organization Chart..................................................................................................................................................18

Available Funds and Staff Years ............................................................................................................................19

Permanent Positions by Grade and Staff Years ......................................................................................................20

Vehicle Fleet...........................................................................................................................................................21

Shared Funding Projects.........................................................................................................................................23

Forest and Rangeland Research...................................................................................................................................25

Lead-Off Tabular Statement ...................................................................................................................................25

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

Project Statement ....................................................................................................................................................26

Four-Year Summary of Appropriations and Staff Years ........................................................................................26

Justifications...........................................................................................................................................................27

Classification By Objects........................................................................................................................................29

Status of Programs..................................................................................................................................................30

State and Private Forestry............................................................................................................................................35

Lead-Off Tabular Statement ...................................................................................................................................35

Appropriations Language........................................................................................................................................35

Project Statement ....................................................................................................................................................36

Four-Year Summary of Appropriations and Staff Years ........................................................................................37

Justifications...........................................................................................................................................................37

Classification By Objects........................................................................................................................................43

Status of Programs..................................................................................................................................................44

National Forest System................................................................................................................................................55

Lead-Off Tabular Statement ...................................................................................................................................55

Appropriations Language........................................................................................................................................55

Project Statement ....................................................................................................................................................56

Four-Year Summary of Appropriations and Staff Years ........................................................................................57

Justifications...........................................................................................................................................................57

Classification By Objects........................................................................................................................................65

Status of Programs..................................................................................................................................................66
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Capital Improvement and Maintenance .......................................................................................................................81

Lead-Off Tabular Statement ...................................................................................................................................81

Appropriations Language........................................................................................................................................81

Project Statement ....................................................................................................................................................82

Four-Year Summary of Appropriations and Staff Years ........................................................................................82

Justifications...........................................................................................................................................................83

Classification By Objects........................................................................................................................................85

Status of Programs..................................................................................................................................................86

Land Acquisition .........................................................................................................................................................89

Lead-Off Tabular Statement ...................................................................................................................................89

Appropriations Language........................................................................................................................................89

Project Statement ....................................................................................................................................................90

Four-Year Summary of Appropriations and Staff Years ........................................................................................90

Justifications...........................................................................................................................................................91

Classification By Objects........................................................................................................................................92

Status of Programs..................................................................................................................................................93

Other Appropriations...................................................................................................................................................95

Lead-Off Tabular Statement ...................................................................................................................................95

Appropriations Language........................................................................................................................................95

Project Statement ....................................................................................................................................................96

Four-Year Summary of Appropriations and Staff Years ........................................................................................96

Justifications...........................................................................................................................................................97

Classification by Objects ........................................................................................................................................99

Status of Programs................................................................................................................................................100

Wildland Fire Management .......................................................................................................................................103

Lead-Off Tabular Statement .................................................................................................................................103

Appropriations Language......................................................................................................................................103

Project Statement ..................................................................................................................................................104

Four-Year Summary of Appropriations and Staff Years ......................................................................................105

Justifications.........................................................................................................................................................105

Classification by Objects ......................................................................................................................................107

Status of Programs................................................................................................................................................108

FLAME Wildfire Suppression Reserve Fund............................................................................................................115

Project Statement ..................................................................................................................................................115

Justification...........................................................................................................................................................115

Permanent Appropriations.........................................................................................................................................117

Lead-Off Tabular Statement .................................................................................................................................117

Project Statement ..................................................................................................................................................118

Status of Programs................................................................................................................................................119

Payments to States.....................................................................................................................................................129
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Trust Funds................................................................................................................................................................131

Lead-Off Tabular Statement .................................................................................................................................131

Project Statement ..................................................................................................................................................131

Status of Programs................................................................................................................................................132

Discretionary Legislative Proposals ..........................................................................................................................135

Federal Lands Recreation Enhancement Act Reauthorization (FLREA) - Reauthorization.................................135

Forest Management...............................................................................................................................................135

Grazing Permits- FLPMA Amendment ................................................................................................................135

Wild and Scenic Rivers Act - Amendment...........................................................................................................135

Forest Botanical Products - Reauthorization.........................................................................................................135

Land Uses/Infrastructure Special Use Processing- Full Cost Recovery ...............................................................136

Mineral Receipts from National Forest System Lands .........................................................................................136

Communications Site Program- Administrative Fee Retention............................................................................136

Mandatory Legislative Proposals ..............................................................................................................................139

Use of Minerals Receipts From National Forest System Lands to Accelerate Minerals Permitting-Cost Recovery

..............................................................................................................................................................................139

Cost Recovery for Screening Proposals................................................................................................................139

Roads and Trails Fund ..........................................................................................................................................139

Agency-Wide Performance .......................................................................................................................................141

Summary of Performance .....................................................................................................................................141

Selected Past Accomplishments Toward the Achievement of the KPI Outcomes................................................141

Selected Accomplishments Expected at the 2020 Proposed Resource Level .......................................................141

Forest Service Strategic Goals Performance Overview ........................................................................................142

Special Exhibits.........................................................................................................................................................147

Biomass and Wood Innovations ...........................................................................................................................147

California Tree Mortality......................................................................................................................................150

Chief’s Reserve Fund............................................................................................................................................152

Criteria for Allocating Funding for Recreation Access ........................................................................................153

Equal Access to Justice Act ..................................................................................................................................160

2018 farm bill and 2018 Omnibus Authorities Implementation ...........................................................................171

Fire Transfers........................................................................................................................................................175

Forest Service Budget Structure Reform ..............................................................................................................177

National Scenic and Historic Trails......................................................................................................................188

Office of General Counsel Reimbursement ..........................................................................................................192

Region, Station, and Area Allocations..................................................................................................................193

Research and Development Field Unit Budget Report .........................................................................................216

Stewardship Contracting.......................................................................................................................................238

Transition to Second Growth in Alaska ................................................................................................................241

Unliquidated Obligations......................................................................................................................................243

Unobligated Balances...........................................................................................................................................246
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USDA Working Capital Fund, Departmental Shared Cost Programs and Central Cost Distribution Programs...249

Forest Service - Working Capital Fund ................................................................................................................253
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AGENCY-WIDE

BUDGET OVERVIEW

“The greatest good for the greatest number in the long run.”

Gifford Pinchot, first Chief of the U.S. Forest Service (1905-1910)

Mission

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

grasslands to meet the needs of present and future generations.

Budget Overview

Forest Service Priorities

The FY 2020 Forest Service budget for discretionary appropriations is $5.14 billion, a decrease of $815 million from 

the 2019 Annualized Continuing Resolution amount. It includes $2.4 billion for Wildland Fire Management, a 

decrease of $530 million from the 2019 Annualized Continuing Resolution because the “fire fix” cap adjustment 

becomes available in FY 2020, while the FY 2019 Annualized Continuing Resolution includes $500 million above 

the base as bridge to the first year of the fire fix. The budget also includes $1.9 billion for the management of 

National Forest System (NFS) lands, equal to the 2019 Annualized Continuing Resolution. In alignment with USDA 

Strategic Goal 6: Ensure Productive and Sustainable Use of our National Forest System Land and the 

Administration’s broader goals, the Forest Service’s strategic and programmatic direction prioritizes investments to 

reduce wildland fire risk, improve forest and grassland conditions at a larger landscape scale through a model of 

shared stewardship, promote recreation opportunities on NFS lands, and generate jobs and economic benefits for 

rural communities. To maximize results and outcomes, the agency will use existing authorities to strengthen State 

partnerships and will use active management tools to treat more acres and increase the pace and efficiency of forest 

conditions improvement, while also focusing on reforming internal processes to streamline program delivery and 

improve customer service.

Additionally, the Forest Service will continue to proactively address work culture issues. The agency will be focused 

on continually improving policies, ensuring accountability, strengthening reporting systems, and providing training 

to foster a safe, resilient, and harassment-free work culture where employees are treated with respect and dignity.

Jobs and Economic Contribution

The FY 2020 budget request supports considerable economic activity in national, regional, and local economies 

through natural resource management, research and development, wildland fire management, and by providing 

sustainable use of the national forests and grasslands. The FY 2020 budget maintains significant Forest Service 

economic activity, benefiting many rural forest and grassland dependent communities.

A 2017 economic analysis indicates Forest Service programs and work contribute nearly 196,000 jobs (average 

annual full-time, part-time, temporary, and seasonal) and more than $11 billion in gross domestic product annually. 

Recreational visitor use, hunting and fishing, energy and minerals development, forest products, and livestock 

grazing generated nearly 65 percent of the economic activity. 

Shared Stewardship

In 2018, the Secretary of Agriculture announced a new strategy entitled “Toward Shared Stewardship Across 

Landscapes: An Outcome-Based Investment Strategy” that calls for stronger collaborative decision-making with 

States and partners and employs new technology that can be shared. In FY 2020, the Forest Service will increase 

emphasis on work across boundaries to optimize use of appropriated funds, other resources, and decision-making to 

prioritize investments in lands that can make a difference in conditions across an entire landscape. This collaboration 

will result in higher gains in reducing fire risk and create more resilient forest conditions.

Wildland Fire Management

In FY 2020, the Wildland Fire Management budget is proposed at $2.4 billion, a decrease of $530 million below the 

FY 2018 enacted amount; again, because the “fire fix” cap adjustment becomes available in FY 2020, while the FY 

2019 Annualized Continuing Resolution includes $500 million above the base as bridge to the first year of the fire 

fix. Wildland Fire Management remains a top priority for the Forest Service and aligns with USDA Strategic 

Objective 6.3 “Mitigate Wildfire Risk.” Of this amount,
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 $1.34 billion is requested for Preparedness activities, $16.1 million above the FY 2018 enacted level. Funds will 

be targeted to facilitate continued investment in standardization of preparedness resources.

 $1.011 billion is requested for Suppression activities as stipulated within the Wildfire Suppression Funding and 

Forest Management Activities Act of the Consolidated Appropriations Act, 2018 (P.L. 115–141). This funding 

level will remain constant until FY 2027.

Beginning in FY 2020 and through FY 2027, the Forest Service and the Department of the Interior will have new 

budget authority available when Suppression funding has been exhausted. This budget authority starts at $2.25 

billion in FY 2020 and increases by $100 million each year through FY 2027. This additional funding will be 

leveraged by the agency to more strategically approach programmatic and fiscal management of wildland fire 

response and management programs.

National Forest System

The FY 2020 Budget requests $1.91 billion for the National Forest System, including Hazardous Fuels funding. This 

request includes:

 $450 million for Hazardous Fuels to improve the condition of the Nation’s forests and grasslands.

 $375 million for Forest Products to support the Administration’s commitment to rural communities, jobs 

creation, shared stewardship, and the production of goods and services from NFS lands. In 2020, the Forest 

Service will sell 3.7 billion board feet of timber to continue work towards the President’s goals established in 

the Executive Order Promoting Active Management of America’s Forests, Rangelands, and other Federal Lands 

to Improve Conditions and Reduce Wildfire Risk issued on December 21, 2018, while improving more than 1.1 

million acres of National Forest System lands to mitigate wildfire risk. The agency will advance its forest 

products modernization efforts to better meet current and future market demand for forest products in ways that 

simultaneously improve forest conditions.

 $258 million for Recreation, Heritage, and Wilderness to provide sustainable recreation programs that support 

rural economies, meaningful outdoor experiences, and improved access.

Work Culture

Paramount to carrying out the agency’s mission and delivering needed services to the American public is the 

creation of a workplace where all employees feel valued, safe, and respected. The Forest Service remains committed 

to addressing harassment, bullying, and retaliation and taking decisive actions when such unacceptable conduct 

occurs. The agency has taken, and will continue to take, significant steps to improve policies, accountability, 

reporting systems, and training around workplace culture.

In FY 2018, the Forest Service created a Work Environment and Performance Office, headed by a Senior Executive, 

whose sole focus is on workplace issues. This Office will develop tools and resources to help all employees to 

positively impact and reinforce a positive agency culture.
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ADMINISTRATIVE PROVISIONS (INCLUDING TRANSFERS OF FUNDS)

Appropriations to the Forest Service for the current fiscal year shall be available for: (1) purchase of 

passenger motor vehicles; acquisition of passenger motor vehicles from excess sources, and hire of such 

vehicles; purchase, lease, operation, maintenance, and acquisition of aircraft 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).

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 heading "Wildland Fire Management" will be obligated within 30 days.

[Notwithstanding any other provision of this Act, the Forest Service may transfer] Funds appropriated to 

the Forest Service by this Act, except for funds appropriated as additional new budget authority as 

specified for purposes of section 251(b)(2)(F) of the Balanced Budget and Emergency Deficit Control 

Act of 1985 (2 U.S.C. 251(b)(2)(F)), may be transferred to or within the "National Forest System" 

account for the purposes of hazardous fuels management and emergency rehabilitation of burned-over 

National Forest System lands and water: Provided, That such transferred funds shall remain available 

through September 30, [2022] 2023: Provided further, That none of the funds transferred pursuant to this 

section shall be available for obligation without written notification to and the prior approval of the 

Committees on Appropriations of both Houses of Congress.

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.

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.

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 107–171 (7 U.S.C. 8316(b)).

None of the funds available to the Forest Service may be reprogrammed without the advance notification 

to the House and Senate Committees on Appropriations in accordance with the reprogramming 

procedures contained in the explanatory statement accompanying this Act.

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 information 
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technology services from the Department of Agriculture, [National Information Technology Center and 

the Department of Agriculture's International Technology Service] financed by the Department’s 

Working Capital Fund, including telecommunications and system modifications or enhancements.

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.

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.

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: 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.

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.

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.

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.

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)).

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 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 sums requested for transfer.

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.

Change Description

The first change (third paragraph) incorporates authority granted to the USDA Forest Service in the 

Consolidated Appropriations 2017 to transfer unobligated prior year balances to implement hazardous 

fuels and post-fire rehabilitation of land.
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The second change (eighth paragraph) allows the Forest Service to exceed the $82 million cap on 

contributions to the Department’s Working Capital Fund for information technology activities.

GENERAL PROVISIONS (INCLUDING TRANSFERS OF FUNDS)

OBLIGATION OF APPROPRIATIONS

SEC. 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.

DISCLOSURE OF ADMINISTRATIVE EXPENSES

SEC. 402. The amount and basis of estimated overhead charges, deductions, re- serves or holdbacks, 

including working capital fund and cost pool charges, from programs, projects, activities and subactivities 

to support government-wide, departmental, agency, or bureau administrative functions or headquarters, 

regional, or central operations shall be presented in annual budget justifications. Advance notice of 

changes to such estimates shall be presented to the Committees on Appropriations.

MINING APPLICATIONS

SEC. 403. (a) LIMITATION OF FUNDS.—None of the funds appropriated or otherwise made available 

pursuant to this Act shall be obligated or expended to accept or process applications for a patent for any 

mining or mill site claim located under the general mining laws.

(b) EXCEPTIONS.—Subsection (a) shall not apply if the Secretary of the Interior determines that, for the 

claim concerned (1) a patent application was filed with the Secretary on or before September 30, 1994; 

and (2) all requirements established under sections 2325 and 2326 of the Revised Statutes (30 U.S.C. 29 

and 30) for vein or lode claims, sections 2329, 2330, 2331, and 2333 of the Revised Statutes (30 U.S.C. 

35, 36, and 37) for placer claims, and section 2337 of the Revised Statutes (30 U.S.C. 42) for mill site 

claims, as the case may be, were fully complied with by the applicant by that date.

(c) REPORT.—On September 30, 2020, the Secretary of the Interior shall file with the House and Senate 

Committees on Appropriations and the Committee on Natural Resources of the House and the Committee 

on Energy and Natural Resources of the Senate a report on actions taken by the Department under the 

plan submitted pursuant to section 314(c) of the Department of the Interior and Related Agencies 

Appropriations Act, 1997 (Public Law 104–208).

(d) MINERAL EXAMINATIONS.—In order to process patent applications in a timely and responsible 

manner, upon the request of a patent applicant, the Secretary of the Interior shall allow the applicant to 

fund a qualified third-party contractor to be selected by the Director of the Bureau of Land Management 

to conduct a mineral examination of the mining claims or mill sites contained in a patent application as 

set forth in subsection (b). The Bureau of Land Management shall have the sole responsibility to choose 

and pay the third-party contractor in accordance with the standard procedures employed by the Bureau of 

Land Management in the retention of third-party contractors.

CONTRACT SUPPORT COSTS, PRIOR YEAR LIMITATION

Sec. 404 Sections 405 and 406 of division F of the Consolidated and Further Continuing 

Appropriations Act, 2015 (Public Law 113–235) shall continue in effect in fiscal year 2019.

CONTRACT SUPPORT COSTS, FISCAL YEAR 2019 LIMITATIONS

Sec. 405 Amounts provided by this Act for fiscal year 2019 under the headings "Department of Health 

and Human Services, Indian Health Service, Contract Support Costs" and "Department of the Interior, 

Bureau of Indian Affairs and Bureau of Indian Education, Contract Support Costs" are the only amounts 

available for contract support costs arising out of self-determination or self-governance contracts, grants, 

compacts, or annual funding agreements for fiscal year 2019 with the Bureau of Indian Affairs or the 

Indian Health Service: Provided, That such amounts provided by this Act are not available for payment of 

claims for contract support costs for prior years, or for repayments of payments for settlements or 

judgments awarding contract support costs for prior years.
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FOREST MANAGEMENT PLANS

SEC. 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.

PROHIBITION WITHIN NATIONAL MONUMENTS

SEC. 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.

LIMITATION ON TAKINGS

SEC. 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 providing prior 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.

PROHIBITION ON NO-BID CONTRACTS

Sec. 409 None of the funds appropriated or otherwise made available by this Act to executive branch 

agencies may be used to enter into any Federal contract unless such contract is entered into in 

accordance with the requirements of Chapter 33 of Title 41, United States Code, or Chapter 137 of 

Title 10, United States Code, and the Federal Acquisition Regulations, unless-

(1) Federal law specifically authorizes a contract to be entered into without regard for these 

requirements, including formula grants for States, or Federally recognized Indian Tribes; or

(2) Such Contract is authorized by the Indian Self-Determination and Education Assistance Act 

(Public Law 93-638, 25 U.S.C. 450 et seq.) or by any other Federal laws that specifically 

authorize a contract within an Indian Tribe as defined in Section 4e of that Act (25 U.S.C. 

450B(e)); or

(3) Such contract was awarded prior to the date of enactment of this Act.

POSTING OF REPORTS

SEC. 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—the public posting of the report compromises national 

security; or 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.

RECREATION FEE

SEC. 411. Section 810 of the Federal Lands Recreation Enhancement Act (16 U.S.C. 6809) is amended 

by striking "September 30, [2019]" and inserting "September 30, [2020]2022".
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PROHIBITION ON USE OF FUNDS

Sec. 412 Notwithstanding any other provision of law, none of the funds made available in this Act or 

any other Act may be used to promulgate or implement any regulation requiring the issuance of 

permits under title V of the Clean Air Act (42 U.S.C. 7661 et seq.) for carbon dioxide, nitrous oxide, 

water vapor, or methane emissions resulting from biological processes associated with livestock 

production.

GREENHOUSE GAS REPORTING RESTRICTIONS

Sec. 413 Notwithstanding any other provision of law, none of the funds made available in this or any 

other Act may be used to implement any provision in a rule, if that provision requires mandatory 

reporting of greenhouse gas emissions from manure management systems.

CONTRACTING AUTHORITIES

SEC. 414. Section 412 of Division E of Public Law 112–74 is amended by striking "fiscal year 2017," 

and inserting "fiscal year [2019]2020".

CHESAPEAKE BAY INITIATIVE

Sec. 415 Section 502(c) of the Chesapeake Bay Initiative Act of 1998 (Public Law 105–312; 54 

U.S.C. 320101 note) is amended by striking "2017" and inserting "2020".

EXTENSION OF GRAZING PERMITS

SEC. 416. 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 [2019]2020.

WILD AND SCENIC RIVERS COMPREHENSIVE RIVER MANAGEMENT PLANS

[SEC. 424]SEC.417 The Secretary of Agriculture shall not be considered to be in violation of Section 

3(d)(1) of the Wild and Scenic Rivers Act solely because more than three years have passed since 

designation prior to the completion of a comprehensive river management plan; Provided, that if more 

than three years have passed since designation without the completion of a comprehensive river 

management plan, then said plan must be completed or appropriately updated no later than during the 

next forest plan revision process.

INTERPRETIVE ASSOCIATION AUTHORITY

SEC. 418 Section 426 of Division G of the Consolidated Appropriations Act, 2014 (Public Law 113-

7616 U.S.C. 565a-1 note) is amended by striking “2019” and inserting “2020”.

SHASTA-TRINITY MARINA FEE AUTHORITY

SEC. 419 Section 422 of Division F of the Consolidated Appropriations Act, 2008 (P.L. 110-161; 121 

Stat. 1844) is amended by striking “2019” and inserting “2020”.

PUERTO-RICO SCHOOLING

SEC. 420 The 18th unnumbered paragraph under heading “Administrative Provisions, Forest 

Service” in the Department of the Interior, Environment, and Related Agencies Appropriations Act, 

2014 (P.L. 113-76) 128 Stat. 327 is amended by striking “2019” and inserting “2020”.

Change Description

The first change extends authority for the Federal Lands Recreation Enhancement Act (16 U.S.C. 6809).

The second change extends the contracting authority provision to 2020.

The third change addresses 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 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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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.

The fourth change changes the Wild and Scenic Rivers Act to state that the Secretary of Agriculture shall 

not be considered to be in violation of Section 3(d)(1) of the Wild and Scenic Rivers Act solely because 

more than three years have passed since a river was designated “wild and scenic” and a comprehensive 

river management plan has not yet been completed.

The fifth change would allow partners to help the Forest Service provide the best possible recreation 

experience to the public. The authority allows partners to provide interpretive programs, sell items (like 

bottled water) that the public expects to be available at recreation sites, and allows partners to collect and 

use funds to further the Forest Service’s mission to provide quality recreation. The authority is critical to 

providing the customer experience that the public seeks on National Forest lands.

The sixth change would be a straight extension of a current authority. The Shasta-Trinity has its own fee 

collection authority for the marina which essentially allows the forest to collect and retain fees for the 

marina itself.

The seventh change proposes one-year extension of authority for the use of funds to pay the expenses of 

primary and secondary school for dependents of agency personnel stationed in Puerto Rico where 

adequate public schooling is not available. This authority was last extended in 2014 and expires in 2019.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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PURPOSE STATEMENT

The USDA Forest Service (FS) was established within the Department of Agriculture in 1905, pursuant to the 

Transfer Act of 1905 (33 Stat. 628) and the Agricultural Appropriation Act of 1906 (33 Stat.872). The mission of 

the agency is to sustain the health, diversity, and productivity of the nation’s forests and grasslands to meet the needs 

of present and future generations. The FS is composed of four Deputy Areas: (1) National Forest System, (2) 

Research & Development, (3) State and Private Forestry, and (4) Business Operations.

The National Forest System includes 154 national forests and 20 grasslands. The natural resources on these lands are 

some of the nation’s greatest assets and have major economic, environmental, and social significance for all 

Americans.

Research and Development provides the scientific and technical knowledge necessary to protect and sustain the 

nation’s natural resources on all lands.

State and Private Forestry cooperates with State and local governments, Tribes, forest industries, other private 

landowners, and forest users in the management, protection, and development of forest land in non-Federal 

ownership. Wildland Fire and Aviation Management is managed within State and Private Forestry. Wildland Fire 

Management provides leadership in wildland fire management operations and research, protecting 193 million acres 

of National Forest System Lands and an additional 20 million acres of State and private lands.

Business Operations provides direction, quality assurance, and customer service in carrying out agency activities 

associated with strategic planning, budget, human resource management, acquisition management, and the Chief 

Information Officer.

FS headquarters is located in Washington, D.C. As of September 30, 2018, there were 27,062 permanent full-time 

employees, including 541 in the headquarters office and 26,521 in regional and field offices.

OIG and GAO Reports

Completed GAO Reports

Audit Number Date Title Results

18-56 01/31/2018 Forest Service Internal Control Over Budget Execution 

Process

Implementation of corrective 

actions in progress

18-593 08/15/2018 Forest Service Federal Timber Sales Implementation of corrective 

actions in progress

In-Progress GAO Reports

Audit Number Title Results

102965 Looting and Trafficking of Native American Culture Items Audit fieldwork in progress

103001 Hardrock Mining and the General Mining Law of 1872 Audit fieldwork in progress

102759 2017 Wildfire Response Audit fieldwork in progress

102599 Network for Manufacturing Innovation Program Audit fieldwork in progress

102836 Issues Related to Hardrock Mining Audit fieldwork in progress

102623 Job Corps Contractor Performance Audit fieldwork in progress

102653 Wildland Fire Fuel Management Activities Audit fieldwork in progress

102645 Land and Water Conservation Fund Audit fieldwork in progress

102426 Security Threats to Federal Land Management Facilities Audit fieldwork in progress
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Completed OIG Reports

Audit Number Date Title Results

08016-0001-23 12/01/2017 Forest Service’s Controls Over Explosives and Magazines Implementation of corrective 

actions in progress

08601-0007-41 12/22/2017 Forest Service’s Controls over Service Contracts Implementation of corrective 

actions in progress

08601-0008-14(1) 03/05/2018 Forest Service Initiative to address Workplace Misconduct –

Interim Report

Implementation of corrective 

actions in progress

08003-0001-22 03/30/2018 Drug Enforcement on National Forest System Lands Implementation of corrective 

actions in progress

In-Progress OIG Reports

Audit Number Title Results

08601-0008-41 Forest Service Initiatives to Address Workplace Misconduct Audit Audit fieldwork in progress

08601-0009-41 Controls Over Contract Close Out Audit fieldwork in progress

08702-0001-41 Forest Service Controls Over its 2018 Supplemental Disaster 

Appropriations

Audit fieldwork in progress
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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LEAD-OFF TABULAR STATEMENT

Lead-Off Tabular Statement (Discretionary Funding)

Forest Service (total of the following accounts)

2019 Annualized Continuing Resolution.................................................................................................................$5,955,602,000

Change in Appropriation ............................................................................................................................................ -815,104,000

Budget Estimate, 2020...............................................................................................................................................5,140,498,000

Forest and Rangeland Research

2019 Annualized Continuing Resolution....................................................................................................................$297,000,000

Change in Appropriation .............................................................................................................................................. -42,500,000

Budget Estimate, 2020..................................................................................................................................................254,500,000

State and Private Forestry

2019 Annualized Continuing Resolution....................................................................................................................$335,525,000

Change in Appropriation........................................ ........................................................................................ -153,229,000

Budget Estimate, 2020............................................... ..........................................................................................182,296,000

National Forest System

2019 Annualized Continuing Resolution.................................................................................................................$1,923,750,000

Change in Appropriation .............................................................................................................................................. -11,000,000

Budget Estimate, 2020, Current Law.........................................................................................................................1,912,750,000

Capital Improvement and Maintenance

2019 Annualized Continuing Resolution....................................................................................................................$449,000,000

Change in Appropriation ............................................................................................................................................. -15,000,000

Budget Estimate, 2020..................................................................................................................................................434,000,000

Land Acquisition

2019 Annualized Continuing Resolution......................................................................................................................$65,379,000

Change in Appropriation ............................................................................................................................................. -65,379,000

Budget Estimate, 2020....................................................................................................................................................................-

Other Appropriations

2019 Annualized Continuing Resolution........................................................................................................................$4,610,000

Change in Appropriation .............................................................................................................................................. +1,722,000

Budget Estimate, 2020......................................................................................................................................................6,332,000

Wildland Fire Management

2019 Annualized Continuing Resolution.................................................................................................................$2,880,338,000

Change in Appropriation ........................................................................................................................................... -529,718,000

Budget Estimate, 2020...............................................................................................................................................2,350,620,000

Lead-Off Tabular Statement (Mandatory Funding)

Forest Service (total of the following accounts)

2019 Annualized Continuing Resolution....................................................................................................................$377,396,000

Change in Appropriation .............................................................................................................................................. -11,818,000

Budget Estimate, 2020..................................................................................................................................................365,578,000

Budget Estimate, Current Law 2020.............................................................................................................................365,578,000

Change Due to Proposed Legislation........................................................................................................................ +193,000,000

Net 2020 Request..........................................................................................................................................................558,578,000

Permanent Appropriations

2019 Annualized Continuing Resolution....................................................................................................................$285,396,000

Change in Appropriation .............................................................................................................................................. -16,818,000

Budget Estimate, 2020, Current Law............................................................................................................................268,578,000

Budget Estimate, Current Law 2020...........................................................................................................................$268,578,000

Change Due to Proposed Legislation........................................................................................................................ +193,000,000

Net 2020 Request..........................................................................................................................................................461,578,000

Trust Funds

2019 Annualized Continuing Resolution......................................................................................................................$92,000,000

Change in Appropriations.................................................................................................................................................5,000,000

Budget Estimate, 2020, Current Law..............................................................................................................................97,000,000
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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FOUR-YEAR SUMMARY OF APPROPRIATIONS

Four-Year Summary of Appropriations (dollars in thousands)

Item 2017 Actual 2018 Actual 2019 Estimate 2020 Budget

Forest & Rangeland Research

Forest and Rangeland Research ............................ $211,514 $220,000 $220,000 $177,500

Forest Inventory and Analysis .............................. 77,000 77,000 77,000 77,000

Forest & Rangeland Research Total .............. 288,514 297,000 297,000 254,500

State & Private Forestry

Landscape Scale Restoration................................. 14,000 14,000 14,000 -

FHM - Federal Lands............................................ 55,500 55,500 55,500 51,495

FHM - Cooperative Lands .................................... 39,000 41,000 41,000 34,376

Working Forest Lands a........................................ 20,036 20,500 20,500 19,475

Forest Legacy Program......................................... 62,347 67,025 67,025 -

Community Forest & Open Space Conservation .. 2,000 4,000 4,000 -

Urban and Community Forestry............................ 28,040 28,500 28,500 -

International Programs.......................................... 8,000 9,000 9,000 -

National Fire Capacity .......................................... - 80,000 80,000 65,930

Rural Fire Capacity............................................... - 16,000 16,000 11,020

State & Private Forestry Total ....................... 228,923 335,525 335,525 182,296

National Forest System

Collaborative Forest Landscape Restoration......... 40,000 40,000 40,000 -

Land Management Planning, Assessment and 

Monitoring...................................................... 182,928 179,263 179,263 179,263

Recreation, Heritage, & Wilderness...................... 264,595 257,848 257,848 257,848

Wildlife & Fisheries Habitat Management............ 140,466 136,430 136,430 136,430

Hazardous Fuels.................................................... - 430,000 430,000 450,000

Grazing Management............................................ 56,856 56,856 56,856 56,856

Forest Products ..................................................... 367,805 366,000 366,000 375,000

Vegetation & Watershed Management ................. 184,716 180,000 180,000 180,000

Minerals & Geology Management........................ 75,569 74,200 74,200 74,200

Land Use Authorization and Access b................... 73,730 74,000 74,000 74,000

Law Enforcement Operations ............................... 126,653 129,153 129,153 129,153

National Forest System Total.......................... 1,513,318 1,923,750 1,923,750 1,912,750

Capital Improvement & Maintenance

Facilities................................................................ 71,390 151,000 151,000 151,000

Roads.................................................................... 175,094 218,000 218,000 218,000

Trails..................................................................... 77,530 80,000 80,000 65,000

Legacy Roads and Trails....................................... 40,000 - - -

Capital Improvement & Maintenance Total . 364,014 449,000 449,000 434,000

Land Acquisition

Land Acquisition................................................... 54,415 64,337 64,337 -

Acquisition of Land for National Forests Special 

Acts................................................................. 950 850 850 -

Acquisition of Lands to Complete Land 

Exchanges....................................................... 216 192 192 -

Land Acquisition Total c.................................. 55,581 65,379 65,379 -

Other Appropriations

Range Betterment Fund ........................................ 2,320 2,065 2,065 -

Gifts, Donations, & Bequest for Forest & 

Rangeland Research........................................ 45 45 45 -
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Item 2017 Actual 2018 Actual 2019 Estimate 2020 Budget

Management of National Forest Lands for 

Subsistence Uses............................................. 2,500 2,500 2,500 1,832

Communication Site Administration..................... - - - 4,500

Other Appropriations Total c.......................... 4,865 4,610 4,610 6,332

Wildland Fire Management

Preparedness ......................................................... 1,082,620 1,323,520 1,323,520 1,339,620

Suppression........................................................... 1,248,000 1,556,818 1,556,818 1,011,000

National Fire Plan ................................................. 19,795 - - -

Hazardous Fuels.................................................... 390,000 - - -

National Fire Capacity .......................................... 78,000 - - -

Rural Fire Capacity............................................... 15,000 - - -

Wildland Fire Management Total .................. 2,833,415 2,880,338 2,880,338 2,350,620

FLAME Wildfire Suppression (Emergency 

Designation)....................................................... 342,000 342,000 - -

Discretionary Appropriations Total 5,630,630 6,297,602 5,955,602 5,140,498

Disaster Relief (PL 115-72).................................. - 184,500 - -

Disaster Relief (PL 115-123)................................ - 119,752 - -

Discretionary, FLAME and Supplemental 

Total............................................................ 5,630,630 6,601,854 5,955,602 5,140,498

Permanent Appropriations

Brush Disposal...................................................... 8,257 7,595 8,000 8,000

Timber Salvage Sales............................................ 38,516 41,924 38,000 38,000

Timber Sales Pipeline Restoration ........................ 5,232 4,593 5,000 5,000

Forest Botanical Products ..................................... 1,512 1,713 1,600 1,600

Stewardship Contracting....................................... 14,639 23,635 23,635 23,635

Recreation Fees, Forest Service ............................ 99,712 100,602 65,100 65,100

Timber Purchaser Election Road Construction ..... 2,000 2,000 2,000 2,000

Operation & Maintenance of Forest Service 

Quarters.......................................................... 9,179 10,036 10,036 10,036

Roads and Trails for States ................................... - - - 15,000

Land Between the Lakes Management ................. 5,460 4,515 5,000 5,000

Midewin National Tallgrass Prairie Rental Fees... 340 725 750 750

Quinault Special Management Area ..................... 7 - - -

Restoration of Forest Lands and Improvements.... 37,782 1,705 1,705 1,705

Commercial Filming & Still Photography Land 

Use Fee Retention........................................... 710 653 650 650

Organizational Camps Program ............................ 710 497 500 500

Cost Recovery (Land Uses) .................................. 7,408 11,005 10,850 203,850

Licensee Program Smokey Bear ........................... 286 440 440 440

Licensee Program Woodsy Owl............................ 33 33 33 33

Forest Service Go Green Program (Conservation) 99 128 128 128

Conveyance of Administrative Sites..................... 1,154 4,709 3,000 3,000

Site-Specific Lands Act ........................................ 1,798 26 1 1

Payments to States Funds...................................... 73,053 234,609 108,968 77,150

Permanent Appropriations Total ................... 307,887 451,143 285,396 461,578

Trust Funds

Cooperative Work - Knutson-Vandenberg............ 69,989 187,239 39,184 41,766

Cooperative Work – Other.................................... 35,876 39,405 30,142 31,522

Reforestation Trust Fund ...................................... 30,000 27,246 22,606 23,641

Land Between the Lakes Trust Fund..................... 92 84 68 71
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Item 2017 Actual 2018 Actual 2019 Estimate 2020 Budget

Trust Funds Total ............................................ 135,957 253,974 92,000 97,000

Grand Total, Forest Service......................... 6,074,474 7,306,971 6,332,998 5,699,076

Rescissions

Forest and Rangeland Research ............................ -815 - - -

State and Private Forestry ..................................... -15,502 -5,938 -5,938 -

National Forest Systems........................................ -2,000 - - -

Rescissions Total Deferrals ............................. -18,317 -5,938 -5,938 -

Roads and Trails for States ................................... -16,000 -15,000 -15,000 -

Deferrals Total ................................................. -16,000 -15,000 -15,000 -

a Previously Forest Stewardship Program.

b Previously Landownership Management.

c FY 2017 and FY 2018 actual appropriations are determined by collections, so they do not match enacted levels in appropriations bill which 

are estimates.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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FOUR-YEAR SUMMARY OF STAFF YEARS (SY)

Item 2017 

Actual

2018 

Actual

2019 

Estimate

2020 

Budget

Change 

2020 From 

2019

Forest & Rangeland Research

Forest and Rangeland Research ..................................... 1,464 1,126 1,229 1,017 -212

Forest Inventory and Analysis ....................................... 168 458 456 456 -

Joint Fire Science........................................................... 5 - - - -

Forest & Rangeland Research Total ....................... 1,637 1,584 1,685 1,473 -212

State & Private Forestry

Landscape Scale Restoration.......................................... 2 1 1 - -1

FHM - Federal Lands..................................................... 285 275 275 264 -11

FHM - Cooperative Lands ............................................. 90 126 125 77 -48

Working Forest Lands a................................................. 54 47 47 47 -

Forest Legacy Program.................................................. 28 26 26 - -26

Urban and Community Forestry..................................... 53 48 48 - -48

International Programs................................................... 51 46 28 - -28

National Fire Capacity ................................................... - - 57 44 -13

State & Private Forestry Total ................................ 563 569 607 432 -175

National Forest System

Integrated Resource Restoration Pilot............................ 1,492 - - - -

Collaborative Forest Landscape Restoration.................. 260 240 240 - -240

Land Management Planning, Assessment and 

Monitoring............................................................... 768 182 - 768 +768

Recreation, Heritage, & Wilderness............................... 1,851 1,715 1,715 1,715 -

Wildlife & Fisheries Habitat Management..................... 737 894 872 872 -

Hazardous Fuels............................................................. - 2,098 2,045 2,175 +130

Grazing Management..................................................... 444 413 413 413 -

Forest Products .............................................................. 2,284 2,881 2,809 2,857 +48

Vegetation & Watershed Management .......................... 779 1,108 1,078 1,078 -

Minerals & Geology Management................................. 458 431 431 431 -

Land Use Authorization and Access b............................ 503 454 454 454 -

Law Enforcement Operations ........................................ 658 663 663 691 +28

National Forest System Total................................... 10,234 11,079 10,720 11,454 +734

Capital Improvement & Maintenance

Facilities......................................................................... 292 365 361 361 -

Roads............................................................................. 966 1,059 1,049 1,049 -

Trails.............................................................................. 559 527 522 464 -58

Legacy Roads and Trails................................................ 75 41 - - -

Capital Improvement & Maintenance Total .......... 1,892 1,992 1,932 1,874 -58

Land Acquisition

Land Acquisition............................................................ 60 48 45 - -45

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

Land Acquisition Total............................................. 60 49 46 - -46

Other Appropriations

Range Betterment Fund ................................................. 6 9 10 - -10

Management of National Forest Lands for Subsistence 

Uses......................................................................... 13 11 13 8 -5

Other Appropriations Total..................................... 19 20 23 8 -15
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Item 2017 

Actual

2018 

Actual

2019 

Estimate

2020 

Budget

Change 

2020 From 

2019

Wildland Fire Management

Preparedness .................................................................. 6,936 9,575 9,324 8,785 -539

Suppression.................................................................... 3,752 2,030 1,364 1,285 -79

National Fire Plan .......................................................... 107 - - - -

Hazardous Fuels............................................................. 1,884 - - - -

National Fire Capacity ................................................... 57 - - - -

Wildland Fire Management Total ........................... 12,736 11,605 10,688 10,070 -618

Discretionary Full-Time Equivalent Total........... 27,141 26,898 25,701 25,311 -390

Permanent Funds............................................................... 1,590 1,387 1,427 1,384 -43

Trust Funds ....................................................................... 894 541 688 688 -

FTEs Only -

Allocation..................................................................... 1,392 1,223 1,223 1,223 -

Discretionary Reimbursable ......................................... 740 887 887 857 -30

Working Capital Fund.................................................. 670 613 613 613 -

FTEs Only Total ......................................................... 2,802 2,723 2,723 2,693 -30

Grand Total, Forest Service ........................................... 32,427 31,549 30,539 30,076 -463

a Previously Forest Stewardship Program.

b Previously Landownership Management.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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REVENUE, RECEIPTS AND TRANSFERS

Fiscal Year 2017 - 2020 National Forest Fund (NFF) Receipts Availability (dollars in thousands)

Receipt Type 2017 Actual 2018 Actual 2019 Estimate 2020 Estimate

Class 1 - Timber................................................ $33,224 $39,977 $39,977 $39,977

Class 2 - Grazing East....................................... 62 128 128 128

Class 3 - Land Use ............................................ 21,080 24,139 24,139 24,139

Class 4 - Recreation Spec. Uses........................ 82,990 84,711 84,711 84,711

Class 5 – Power................................................. 7,969 8,281 8,281 8,281

Class 6 – Minerals............................................. 1,855 299 299 299

Class 7 - Recreation User Fees.......................... - - - -

Class 8 - Grazing West...................................... 7,608 5,714 5,714 5,714

Class 9 – Quartz Crystals.................................. 43 - - -

Total NFF Receipts.............................................. 154,831 163,249 163,249 163,249

KV Revenue...................................................... 68,127 57,385 57,385 57,385

Purchaser Road Credit ...................................... - - - -

Specified Road Costs........................................ 15,063 14,639 14,639 14,639

Timber Salvage Sale ......................................... 36,692 41,566 41,566 41,566

Timber Pipeline Revenue.................................. 4,721 1,088 1,088 1,088

Total Other Timber Related Receipts................... 124,603 114,678 114,678 114,678

Grand Total .......................................................... 279,434 277,927 277,927 277,927

Funding Additions and Reductions - Special Acts (dollars in thousands)

2017 Actual 2018 Actual 2019 Estimate 2020 Estimate

Total NFF Receipts ............................................ $154,831 $163,349 $163,349 $163,349

DOI:ONRR/MMS Minerals Revenue NFF...... 19,702 19,702 19,702 19,702

Minnesota Boundary Water Canoe Area 

(BWCA) ..................................................... -6,150 -6,150 -6,150 -6,150

Timber Roads - Purch Elect Program ............... -2,000 -2,000 -2,000 -2,000

Acquisition of Lands for Nat Forests-Spec Act -850 -700 -700 -700

50% Grazing (Range Betterment Fund) - Est.... -3,804 -3,804 -3,804 -3,804

10% Roads & Trails - Est. ................................ -18,676 -15,000 -15,000 15,000

Midewin National Tallgrass Prairie Expansion. -725 -725 -725 -725

Other Special Act Payments (Arkansas Quartz 

and Quinault Spec Mgmt Area) Prior to 

Sequester .................................................... -51 -51 -51 -51

Total Additions/Reductions other than Payments 

to States.......................................................... -32,256 -28,430 -28,430 -1570

Total Receipts Available for Payments to States.. 142,277 154,621 154,621 184,621

Funds Availability for Payments to States (PTS) under Current Legislation: 1908 Act or SRS (dollars in 

thousands)

2017 Actual 2018 Actual 2019 Estimate 2020 Estimate

Total Receipts Available for Payments to States. $142,277 $154,621 $154,621 $184,621

PTS - 25% 7-year Rolling Average of Receipts 

Payment (Prior to Sequester)...................... -12,217 -12,217 -12,217 -12,217

SRS - Title II Allocation - SRS2....................... -25,546 -24,268 -23,054 -21,902

SRS - Failure to Elect Allocation – SRSA........ -195 -185 -176 -167

SRS - Allocation to Treasury ............................ -123 -117 -111 -105

Initial Receipt Reductions for PTS....................... -38,081 -36,787 -35,558 -34,391

Receipts Available for SRS - Title I & III............ 104,196 117,834 119,063 150,230

These figures are estimates based on the best current available data.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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ORGANIZATION CHART
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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AVAILABLE FUNDS AND STAFF YEARS

Available Funds and Staff Years (dollars in thousands, staff years (SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

2020

Budget SY

Discretionary Appropriations:

Forest and Rangeland Research ............ $288,514 1,637 $297,000 1,584 $297,000 1,685 $254,500 1,473

State and Private Forestry ..................... 228,923 563 335,525 569 335,525 607 182,296 432

National Forest Systems........................ 1,513,318 10,234 1,923,750 11,079 1,923,750 10,720 1,912,750 11,454

Capital Improvement and Maintenance 364,014 1,892 449,000 1,992 449,000 1,932 434,000 1,874

Wildland Fire Management................... 2,833,415 12,736 2,880,338 11,605 2,880,338 10,688 2,350,620 10,070

FLAME a............................................... 342,000 - 342,000 - - - - -

Land Acquisition b................................ 55,365 60 65,187 49 65,379 46 - -

Other Appropriations b.......................... 6,753 19 6,333 20 4,610 23 6,332 8

Mandatory Appropriations:

Permanent Funds................................... 307,887 1,590 451,143 1,387 302,796 1,427 461,578 1,384

Trust Funds........................................... 135,957 894 253,974 541 92,000 688 97,000 688

Supplemental Appropriations:

Disaster Supplemental........................... - - 304,252 - - - - -

Total Appropriation ........................... 6,076,146 29,625 7,308,502 28,826 6,349,998 27,816 5,699,076 27,383

Rescission ................................................ -18,317 - -5,938 - -5,938 - - -

Sequestration............................................ -3,388 - 180 - - - - -

Transfers In .............................................. 981,513 107 878,295 - - - - -

Transfers Out............................................ -441,302 -107 -879,383 - - - - -

Total Adjusted Appropriation ............... 6,594,652 29,625 7,301,656 28,826 6,344,060 27,816 5,699,076 27,383

Recoveries, Other (Net)............................ 287,895 - 213,469 - 256,287 - 256,287 -

Bal. Available, SOY................................. 1,390,031 - 812,733 - 666,888 - 1,194,032 -

Total Available ..................................... 8,272,578 29,625 8,327,858 28,826 7,267,235 27,816 7,149,395 27,383

Lapsing Balances ..................................... -598 - -289 - - - - -

Adjustment for Change in Uncollected 

Payments............................................ -603 - 10 - - - - -

Adjustment for Expenditure Transfer 

from Trust Fund................................. - 234,500 - - - - -

Bal. Available, EOY ................................ -812,733 - -666,888 - -1,194,032 - -1,641,395 -

Total Obligations .................................. 7,458,644 29,625 7,895,191 28,826 6,073,203 27,816 5,508,000 27,383

Other Funding:

Discretionary Federal and Non-Federal 

Reimbursements and Working 

Capital Fund c................................. 510,127 2,802 586,892 2,723 474,067 2,723 405,895 2,693

Total, Forest Service....................... 7,968,771 32,427 8,482,083 31,549 6,547,270 30,539 5,913,895 30,076

Cap Adjustment for Wildfire Suppression 

........................................................... - - - - - - 1,950,000 -

a FLAME funding in FY 2017 was designated by Congress as being for an emergency requirement pursuant to section 251(b)(2)(A)(i) of the 

Balanced Budget and Emergency Deficit Control Act of 1985.

b FY 2017 and FY 2018 actual appropriations are determined by collections, so they do not match enacted levels in appropriations bill which 

are estimates.

c Mandatory reimbursable obligations reported in Permanent and Trust Funds; Discretionary reimbursable obligations reported in 

Discretionary Federal and Non-Federal Reimbursements.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

20

PERMANENT POSITIONS BY GRADE AND STAFF YEARS

Permanent Positions by Grade and Staff Years

Item

D.C. Field

2017 

Actual 

Total D.C. Field

2018 

Actual 

Total D.C. Field

2019 

Estimate 

Total D.C. Field

2020 

Budget 

Total

SES ............................ 36 48 84 28 45 74 28 45 73 28 45 72 

GS-15......................... 112 342 454 48 391 439 48 385 433 47 383 430 

GS-14......................... 213 605 818 183 568 751 180 560 740 179 557 736 

GS-13......................... 183 2,287 2,470 201 2,168 2,369 198 2,136 2,334 197 2,124 2,321 

GS-12......................... 94 3,284 3,378 167 3,114 3,281 164 3,068 3,232 163 3,051 3,214 

GS-11......................... 62 4,980 5,042 65 4,838 4,903 64 4,767 4,831 63 4,740 4,803 

GS-10......................... - 430 430 1 424 425 1 418 419 1 415 416 

GS-9........................... 48 4,876 4,924 59 4,806 4,865 58 4,735 4,792 57 4,708 4,766 

GS-8........................... 2 1,702 1,704 10 1,772 1,782 10 1,745 1,755 10 1,736 1,746 

GS-7........................... 13 4,459 4,472 23 4,338 4,361 23 4,273 4,296 23 4,250 4,272 

GS-6........................... 4 2,559 2,563 3 2,468 2,471 3 2,432 2,434 3 2,418 2,421 

GS-5........................... 9 4,949 4,958 3 5,024 5,027 3 4,950 4,953 3 4,922 4,925 

GS-4........................... 4 3,921 3,925 9 4,145 4,154 9 4,083 4,092 9 4,061 4,070 

GS-3........................... 1 1,629 1,630 2 1,526 1,528 2 1,504 1,506 2 1,495 1,497 

GS-2........................... 1 128 129 1 151 152 1 149 150 1 148 149 

GS-1........................... - 14 14 1 15 16 1 15 16 1 15 16 

Total Perm. Positions 782 36,213 36,995 804 35,794 36,598 793 35,265 36,058 787 35,068 35,855

Unfilled, EOY............ 200 9,252 9,452 263 9,273 9,536 197 8,791 8,988 196 8,742 8,938

Total Perm. FTE 

EOY ................. 582 26,961 27,543 541 26,521 27,062 596 26,474 27,070 591 26,326 26,917

Staff Year Est ......... 685 31,742 32,427 693 30,856 31,549 671 29,868 30,539 581 29,495 30,076
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

21

VEHICLE FLEET

Motor Vehicle Fleet

The Forest Service uses a revolving Working Capital Fund (WCF) to finance its fleet operations. A monthly Fixed 

Ownership Rate and a per-mile use rate are assessed for each owned and GSA-leased vehicle. These expenses are

then pooled from the agency’s annual appropriated funds and are deposited into specific WCF accounts which make 

up the revolving fund. Funds are used to finance the cradle-to-grave management of the agency fleet operation, 

which includes repairs, fuel, maintenance, infrastructure support, program management costs, vehicle depreciation, 

and vehicle replacements.

The Forest Service has a fleet inventory of approximately 15,700 vehicles and retains, on average, an additional 

2,400 vehicles to assist in providing transportation for the seasonal workforce. These vehicles support approximately 

28,000 year-round full-time employees, and an additional 12,000 seasonal employees hired primarily for fire 

suppression activities. These vehicles are retained for an additional 2 years beyond their minimum replacement 

standard and provide a cost-effective alternative to commercial leases or rentals. Both groups of vehicles are 

required to be reported annually through GSA’s Federal Automotive Statistical Tool (FAST).

The Forest Service is structured into regions, forests/grasslands/stations, and districts. The line officers in charge of 

these different levels of the organization are responsible for determining the composition and quantity of vehicles 

required to meet their mission goals. Fleet composition is facilitated using a vehicle allocation methodology (VAM), 

which considers how often a vehicle is used, the total cost of ownership (TCO) analysis, budgetary constraints, 

operating environment, and personnel supported. Line officers are responsible for assigning vehicles to drivers per 

specific mission requirements. Fleet program managers coordinate the certification and authorization of drivers with 

supervisors, monitor fleet composition and utilization rates through the TCO and VAM process, and recommend 

how to optimize fleet size.

The agency aims to manage its fleet program in the most cost-effective way possible. The agency strives to use 

alternative-fueled vehicles for mission needs such as transporting personnel, materials and equipment, where 

infrastructure for these vehicles is available and where the vehicles can meet agency mission needs. The agency also 

works to meet the required annual utilization rates for vehicles given the seasonality of agency work (many areas 

have a limited number of months per year to access remote sites or work areas within the forests). Even with the 

seasonal nature of the work, we have found through financial analysis that it is still more cost effective to own or 

lease a vehicle year-round than to have a commercially leased vehicle, and we continue to share vehicles and 

explore other opportunities to increase utilization rates. Finally, as oversight of fleet programs increases, we are 

aligning and automating our data, so the agency can respond to oversight and audit requirements in an efficient and 

cost-effective manner.

In 2018, the U.S. Department of Agriculture (USDA) established the GSA Federal Fleet Management System 

(FedFMS) as the official USDA Fleet Management Information System of record. The Forest Service is 

aggressively working to establish the necessary interface with FedFMS by Spring of 2019. The Forest Service will 

continue to use the WCF Fleet Equipment Database (FED) which provides the necessary interface with the FS 

financial system and with the GSA AutoChoice vehicle ordering system.

Replacement Criteria

Passenger motor vehicles are replaced based on motor vehicle replacement standards which specify the minimum 

number of years in use or miles traveled. Agencies may keep a Government-owned motor vehicle longer than the 

standard shown if the motor vehicle can be operated without excessive maintenance costs or substantial reduction in 

resale value. The minimum replacement standards for passenger motor vehicles are:

Minimum Vehicle Replacement Standards

Vehicle/Equipment Type Minimum Replacement 

Standards (miles)

Minimum Replacement 

Standards (age)

Passenger carrying vehicles – sedans, station wagons, mini-vans 60,000 mi 3 years

Reductions to Fleet

In September 2018, the Forest Service committed to reduce the number of FY 2018 FAST reportable vehicles by 

2,767 and at a minimum, maintain the agency-verified fleet size of 16,442. In addition, the Forest Service is 

committed to continuously evaluating our fleet composition and any underutilized assets to look for further 

reductions.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Size, Composition, and Annual Costs of Motor Vehicle Fleet

Fiscal 

Year

Sedans 

and 

Station 

Wagons

Light

Duty

Trucks, 

SUVs, 

and 

Vans 

(4x2)

Light 

Duty

Trucks, 

SUVs, 

and 

Vans 

(4x4)

Medium 

Duty 

Vehicles Buses

Heavy 

Duty 

Vehicles

Total 

Vehicles a

Annual 

Operating 

Costs b

2017 477 1,046 9,970 7,556 93 2,171 21,313 $55,870,603

Change -87 -156 -184 +46 -6 +14 -373 +4,962,209

2018 390 890 9,786 7,602 87 2,185 20,940 60,832,812

Change -3 -6 -54 -43 - -13 -119 +1,042,520

2019 387 884 9,732 7,559 87 2,172 20,821 61,875,332

Change - - - - - - - +1,423,133

2020 387 884 9,732 7,559 87 2,172 20,821 63,298,465

a Vehicle count include those owned by agency and leased from commercial sources or GSA.

b Despite a slight decrease in the number of vehicles, costs increase as asset replacement costs go up about 4% per year. In addition, fuel prices 

fluctuate significantly on a quarterly and annual basis.

Statement of Proposed Purchase of Passenger Motor Vehicles

Fiscal Year

Net Active 

Fleet, SOY Disposals Replacements Additions

Total 

Acquisitions

Net Active 

Fleet, EOY

2017 534 107 50 - 50 477

2018 477 112 25 - 25 390

2019 390 35 32 - 32 387

2020 387 31 31 - 31 387

Resource Summary FY 2018 to FY 2020 (Aviation fleet and personnel)

Resource FY 2018 

Actual

FY 2019 

Estimate

FY 2020

Budget

Engines1 900 900 900

Heavy Equipment – Dozers, Tractor Plow Units, Tenders 210 210 210

Helicopters

Type 12 28 28 28

Type 23 34 34 34

Type 34 46 46 46

Airtankers

Next Generation Airtankers5 13 18 18

Scoopers 0 0 0

U.S. Coast Guard converted HC-130H airtankers6 1 0 0

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

1Refers to the suite of wheeled vehicles used to carry firefighters and water to the site of a fire.

2

Includes only agency owned/leased or exclusive use contracted assets. Type 1 are the heaviest class of helicopters.

3Medium-sized helicopters.

4

Includes only helicopters whose primary purpose is wildland fire response. Type 3 are the lightest class of helicopters.

5Numbers reflect maximum number of aircraft allowed under the exclusive use contracts.

6The program to transfer HC-130H airtankers from the U.S. Coast Guard and convert them to firefighting capable resources was terminated at 

the end of FY 2018.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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SHARED FUNDING PROJECTS

Shared Funding Projects (dollars in thousands)

Item 2017 

Actual

2018 

Actual

2019

Estimate

2020

Budget

Working Capital Fund:

Administration

Mail and Reproduction Services.......................................................... $540 $469 $482 $483

Material Management Service Center.................................................. 877 697 902 892

Integrated Procurement Systems.......................................................... 8,423 7,814 8,267 8,137

Procurement Operations Division........................................................ 141 147 129 133

HR Enterprise System Management .................................................... 805 838 1,094 1,168

Subtotal............................................................................................ 10,786 9,966 10,873 10,814

Communication

Creative Media & Broadcast Center .................................................... 614 644 494 497

Correspondence Management Service

Office of the Executive Secretariat ...................................................... 874 787 506 502

Finance and Management

National Finance Center/USDA........................................................... 8,869 9,637 8,764 9,113

Financial Shared Services.................................................................... 54,238 48,745 49,870 50,035

Internal Control Support Services........................................................ 330 398 374 374

Subtotal............................................................................................ 63,437 58,780 59,008 59,522

Information Technology

Digital Infrastructure Services Center.................................................. 21,862 18,469 32,245 32,123

Client Technology Services................................................................. 14,283 13,553 20,255 19,595

Enterprise Network Services................................................................ 6,395 7,308 5,279 15,032

Subtotal............................................................................................ 42,540 39,330 57,779 66,751

Total, Working Capital Fund ..................................................... 118,251 109,507 128,659 138,086

Departmental Shared Cost Programs:

1890's USDA Initiative........................................................................ 1,141 - - -

Advisory Committee Liaison Services (White House Liaison Office) 206 216 231 231

Agency Partnership Outreach - 2,350 2,450 2,450

Continuity of Operations Planning ...................................................... 628 - - -

Classified National Security Information............................................. 225 - - -

Emergency Operations Center ............................................................. 722 - - -

Facility and Infrastructure Review and Assessment ............................ 140 - - -

Faith-Based Initiative and Neighborhood Partnerships........................ 124 - - -

Hispanic-Service Institutions National Program.................................. 603 - - -

Honor Awards...................................................................................... - 7 19 19

Human Resources Self-Service Dashboard.......................................... 181 184 186 205

Human Resources Transformation....................................................... 514 279 - -

Identity and Access Management ........................................................ 2,069 - - -

Intertribal Technical Assistance Network ............................................ 926 979 994 994

Medical Services.................................................................................. 39 35 50 50

Office of Customer Experience............................................................ - 605 981 1,184

People’s Garden................................................................................... 199 150 - -

Personnel and Document Security ....................................................... - 577 547 547

Personnel Security Branch................................................................... 309 - - -

Security Detail ..................................................................................... 1,034 1,395 1,447 1,447

Security Operations.............................................................................. - 3,272 3,316 3,316

TARGET Center.................................................................................. 451 413 362 362
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Item 2017 

Actual

2018 

Actual

2019

Estimate

2020

Budget

USDA 1994 Program........................................................................... 246 - - -

USDA Enterprise Data Analytics Services.......................................... - - - 1,692

Virtual University ................................................................................ 620 317 - -

Total, Department Shared Cost Programs................................... 10,374 10,778 10,585 12,499

E-Gov:

Budget Formulation and Execution Line of Business............................. 30 30 30 30

Enterprise Human Resource Integration................................................. 616 616 616 616 616 616 616 616

E-Payroll................................................................................................. - - - -

E-Travel .................................................................................................. - - - -

Financial Management Line of Business ................................................ 100 100 100 100

Human Resource Management Line of Business.................................... 86 90 90 90

Integrated Acquisition Environment ....................................................... 771 786 849 -

Recruitment One-Stop............................................................................. - - - -

Disaster Assistance Improvement Plan ................................................... - - - -

E-Rulemaking ......................................................................................... 40 50 41 -

Geospatial Line of Business.................................................................... 13 13 13 13

Gov Benefits........................................................................................... - - - -

Grants.gov............................................................................................... 1 1 1 1

Total, E-Gov ....................................................................................... 1,657 1,685 1,740 849
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

25

FOREST AND RANGELAND RESEARCH

LEAD-OFF TABULAR STATEMENT

Lead-Off Tabular Statement

Item Amount

2019 Annualized Continuing Resolution....................................................................................... $297,000,000 

Change in Appropriation ............................................................................................................... -42,500,000 

Budget Estimate, 2020................................................................................................................... 254,500,000 

APPROPRIATIONS LANGUAGE

The appropriations language follows (new language underscored; deleted matter enclosed in brackets):

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

[$297,000,000]$254,500,000, to remain available through September 30, [2022]2023: Provided, 

That of the funds provided under this heading, [$75,000,000]$77,000,000 is for the forest 

inventory and analysis program[, and $14,750,000 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.)].

[Of the unobligated balances from prior year appropriations available under this heading for the 

Joint Fire Science Program, $2,000,000 are hereby permanently cancelled.] 

Change Description

The first change (first paragraph) removes reference to the National Fire Plan to ensure flexibility in program 

implementation and allocations.

The second change (second paragraph) removes cancellation language as no cancellations are proposed.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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PROJECT STATEMENT

Project Statement (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec. SY

2020

Budget SY

Discretionary Appropriations:

Forest and Rangeland 

Research ..................... $216,081 1,464 $191,484 1,126 $190,981 1,229 -$36,894 -212 $154,087 1,017

Forest Inventory and 

Analysis...................... 67,075 168 66,954 458 67,174 456 - - 67,174 456

National Fire Plan ............. 19,795 107 -23 - - - - - - -

Joint Fire Science.............. 3,000 5 -312 - - - - - - -

Forest Products ................. - - -22 - - - - - - -

Research – Other a............. 181 - 38,845 - 38,845 - -5,606 - 33,239 -

Total Adjusted Approp .. 306,132 1,744 296,926 1,584 297,000 1,685 -42,500 -212 254,500 1,473

Rsc, Trns, Other (Net).......... -17,618 -107 74 - - - - - - -

Total Appropriation .......... 288,514 1,637 297,000 1,584 297,000 1,685 -42,500 -212 254,500 1,473

Transfers In:

National Fire Plan ............. 19,795 107 - - - - - - - -

Fire Transfer Repayment .. - - 1,362 - - - - - - -

Subtotal.......................... 19,795 107 1,362 - - - - - - -

Transfers Out:

Fire Transfer ..................... -1,362 - -1,436 - - - - - - -

Subtotal.......................... -1,362 - -1,436 - - - - - - -

Rescission ............................ -815 - - - - - - - - -

Recoveries, Other (Net)........ 5,628 - 2,865 - 4,247 - - - 4,247 -

Bal. Available, SOY............. 12,510 - 1,799 - 2,883 - +23,247 - 26,130

Total Available ................. 324,270 1,744 301,590 1,584 304,130 1,685 -19,254 -212 284,876 1,473

Bal. Available, EOY ............ -1,799 - -2,883 - -26,130 -8,747 - -34,876

Total Obligations .............. 322,471 1,744 298,707 1,584 278,000 1,685 -28,000 -212 250,000 1,473

a Other includes cost pool spending except in FY 2017.

FOUR-YEAR SUMMARY OF APPROPRIATIONS AND STAFF YEARS

Four-Year Summary of Appropriations and Staff Years (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019

Estimate SY

Inc. or 

Dec.

Chg 

Key SY

2020 

Budget SY

Forest and Rangeland 

Research...................... $211,514 1,464 $220,000 1,126 $220,000 1,229 -$42,500 (1) -212 $177,500 1,017

Forest Inventory and 

Analysis...................... 77,000 168 77,000 458 77,000 456 - - $77,000 456

Joint Fire Science .............. - 5 - - - - - - - -

Forest and Rangeland 

Research Total ......... 288,514 1,637 297,000 1,584 297,000 1,685 -42,500 -212 254,500 1,473
2020 USDA EXPLANATORY NOTES – AGRICULTURAL ENGINEERING SERVICE

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JUSTIFICATIONS

Forest and Rangeland Research

Forest Service Forest and Rangeland Research (Forest Service R&D) is at the forefront of science to improve the 

health and use of our Nation’s forests and grasslands.

Continuation of the program is critical because:

 The program conducts research across forest ownerships and the landscape continuum to deliver science 

products that are vital to the active management of National Forest System (NFS) lands.

 The program collaborates with other science agencies and partners to identify priority research areas and reduce 

duplication across the Federal science community.

Base funding supports the Forest Service’s national priority to improve the condition of forests and grasslands. 

Forest Service R&D provides scientific information and technology that supports sustainable management of the 

Nation’s forests and grasslands. Research products inform policy and land-management decisions and provide 

information and technology designed to provide economic, health, and environmental benefits to the American 

public.

Forest Service R&D was previously aligned around Strategic Program Areas and Priority Research Areas. The new 

Forest Service National Research Plan (NRP) will help reorient the Forest Service R&D’s mission to deliver R&D 

products targeted to national priorities, primarily focused on the management of NFS lands. The NRP identifies five 

research areas that provide the foundational science for Forest Service leadership to promote shared stewardship by 

increasing partnerships, enhancing recreation opportunities, improving access, and sustaining and enhancing the 

conditions of the Nation’s forests and grasslands. These research emphasis areas are: (1) Inventory and Monitoring; 

(2) Water and Biological Resources; (3) Forest and Rangeland Management; (4) Forest Products Innovations; and 

(5) People and the Environment. Wildland fire is the primary component of the Forest and Rangeland Management 

emphasis area.

Funds will be used to support 1,017 staff years and focus on providing the knowledge and tools that support the 

management of NFS lands. This will enable Forest Service R&D to target its efforts on the immediate needs of NFS 

land managers and their partners. These needs will cover a wide variety of topics including, but not limited to forest 

restoration, insect and disease management, wildland fire, and water quality and quantity. Forest Service R&D will 

reduce fixed costs (i.e., personnel, facilities, utilities, etc.) substantially across all R&D. This will ensure that more 

of appropriated funding levels go toward maintaining and implementing the emphasis areas under the new NRP.

The funding change is requested for the following items:

(1) A decrease of $42,500,000 and 212 staff years ($220,000,000 and 1,229 staff years available in 2019). Of the 

requested funding, $154,087,000 is the adjusted appropriation when accounting for $23,413,000 in cost pools

allocations.

Funding will be used for research that identifies practical strategies and tactics to improve forest and rangeland 

condition, support community economic development, and help save lives and protect property from 

wildfires.

Forest Inventory and Analysis

The Forest Inventory and Analysis (FIA) program is the Nation's foremost continuous forest census covering all 50 

States. The FIA program generates data 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. FIA leverages one partner dollar for 

every six Federal dollars spent, and provides current and historical information that informs forest management 

planning across the country.

Continuation of this program is critical because:

 FIA data is essential to making sound investment decisions in forest management and land management 

planning, in ensuring the long-term health of forests, and in prolonging the availability of multiple uses from 

forests.The FIA units enter into various grants and cooperative agreements with partners to accomplish 

specialized work in support of the FIA mission. These grants and agreements are with State agencies and 

university partners. Additional cooperators include other Federal and Forest Service offices and non-Federal 
2020 USDA EXPLANATORY NOTES – AGRICULTURAL ENGINEERING SERVICE

28

partners supporting grant collaboration in data collection, information management, and research in techniques 

development. Public agencies are the largest group of spatial data requestors followed by academia and 

industry.

 Benefits derived from FIA include evaluation of wildlife habitat conditions, assessing sustainability of current 

and anticipated ecosystem management practices, monitoring forest health, supporting planning and decisionmaking activities undertaken by public and private enterprises, and anticipating the impact of forest stressors 

(climate change, insect and disease, drought, etc.) on forests.

Base funding supports the Forest Service’s national priority to improve the condition of forests and grasslands. 

Forest Service R&D works closely with State forestry agencies and other partners to achieve the FIA mission. The 

FIA “census for trees” program positions States and public and private landowners to implement and profit from 

alternative energy and ecosystem service markets primarily through carbon sequestration and the conversion of 

woody biomass to energy. The FIA data enables the natural resource community to determine the magnitude of 

changes in forest conditions and trends, and to make projections of future conditions - information which is vital to 

the long-term health of forests and the sustained availability of multiple uses from forests.

FIA falls under the Forest Service R&D’s new National Research Plan emphasis area of Inventory and Monitoring. 

Funds will be used to support 456 staff years.

The funding change is requested for the following items:

At the total appropriation level, including the cost pool allocations, the funding level is maintained at 

$77,000,000. In FY 2020, of the requested funding, $67,174,000 is the adjusted appropriation when accounting 

for $9,826,000 in cost pool allocations.

Funding will focus on providing reliable data, analysis, and tools to identify current status and trends of the 

Nation’s forests and rangelands, management options and impacts, and threats and effects of fire, insects, 

disease, and other natural processes.

National Fire Plan

Elimination of the program is proposed in FY 2020, because the Forest Service will focus on reducing wildland fire 

risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and contributing 

to rural economic prosperity.

Joint Fire Science Program

Elimination of the program is proposed in FY 2020, because the Forest Service will focus reducing wildland fire 

risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and contributing 

to rural economic prosperity.

Other

This line identifies projected cost pool amounts for the requested appropriation in the following amounts:

A) From Forest and Rangeland Research: $23,413,000.

B) From Forest Inventory and Analysis: $9,826,000.

C) Total: $33,239,000 cost pool allocations proposed in FY 2020.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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CLASSIFICATION BY OBJECTS

Classification by Objects (dollars in thousands)

Item 

No. Item 2017 

Actual

2018 

Actual

2019 

Estimate

2020

Budget

Personnel Compensation:

11.0 Total personnel compensation ................................................... $146,746 $144,272 $153,471 $134,162

12.0 Personnel benefits...................................................................... 50,964 50,424 53,639 46,891

13.0 Benefits for former personnel .................................................... 316 936 996 870

Total, personnel comp. and benefits....................................... 198,026 195,632 208,106 181,923

Other Objects:

21.0 Travel and transportation of persons.......................................... 7,283 6,032 4,090 3,984

22.0 Transportation of things............................................................. 1,478 1,224 830 809

23.1 Rent payments to GSA .............................................................. 4,239 3,511 2,381 2,319

23.2 Rental payments to others.......................................................... 4,113 3,407 2,310 2,250

23.3 Communications, utilities, and misc. charges............................ 7,117 5,895 3,997 3,893

24.0 Printing and reproduction .......................................................... 498 412 280 272

25.1 Advisory and assistance services............................................... 167 138 94 91

25.2 Other services ............................................................................ 18,358 15,206 10,311 10,043

25.3 Purchases of goods and services................................................ 17,661 14,628 9,919 9,661

25.4 Operation and maintenance of facilities..................................... 441 365 248 241

25.5 Research and development contracts......................................... 40,309 33,387 22,639 22,051

25.6 Medical care .............................................................................. 4 3 2 2

25.7 Operation and maintenance of equipment.................................. 1,308 1,083 735 716

26.0 Supplies and materials............................................................... 5,964 4,940 3,350 3,263

31.0 Equipment.................................................................................. 5,134 4,252 2,883 2,809

32.0 Land and structures.................................................................... 18 15 10 10

41.0 Grants, subsidies, and contributions .......................................... 10,353 8,575 5,815 5,664

Total, other objects................................................................. 124,445 103,075 69,894 68,077

99.9 Total, new obligations......................................................... 322,471 298,707 278,000 250,000

DHS Building Security Payments (included in 25.3).................... 23 23 21 21 

Position Data:

Average Salary (dollars), ES Position........................................ 174,424 179,539 182,232 184,966

Average Salary (dollars), GS Position ....................................... 82,711 85,180 86,458 87,755

Average Grade, GS Position ...................................................... 10.7 10.8 10.9 10.9
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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STATUS OF PROGRAMS

Forest and Rangeland Research (Forest Service R&D) has been a core component of the Forest Service mission 

since the agency’s inception in 1905. Forest Service R&D conducts research at five regional research stations, plus 

the International Institute of Tropical Forestry in San Juan, Puerto Rico, and the Forest Products Laboratory in 

Madison, Wisconsin. Forest Service R&D laboratories are complemented by a network of 80 experimental forests.

Forest and Rangeland Research

Current Activities

Forest Service R&D provides scientific information and new technology to support sustainable management of the 

Nation’s diverse forests and rangelands. Activities inform policy and land management decisions by providing 

information through technology transfers designed to support economic, health, and environmental benefits for the 

American public.

Specifically Addressed Areas

Forest Service scientists are evaluating chemical methods for identifying the taxonomic and geographic provenance 

of wood to combat illegal logging efforts. Chemical analysis is a promising "rapid screening method" for evaluating 

claims of geographic provenance for wood.

Forest Service researchers are evaluating material extracted from low value wood as potential next-generation wood 

preservatives. This bio-rational approach offers environmentally friendly alternatives to wood preservatives and 

provides a utilization platform for underutilized and invasive wood species.

Forest Service scientists are conducting a timber sale feasibility analysis to support national forest management. 

Researchers will extend the Resource Planning Act market modeling framework to address the condition of timber 

markets at a sub-regional scale in a way that provides useful information for timber sale planners. The Resource 

Planning Act market modeling framework is a set of interacting models that are based on FIA data and driven by 

many factors of change, including socioeconomic and biophysical variables. The “timber marketing” portion is 

based on a forest products trade model that encompasses both domestic and international forest product markets. 

Forest Service researchers are developing a new tool for predicting weather conditions conducive to rapid fire 

growth. The Forest Service is working with the National Weather Service to integrate this tool into Forest Service 

fire weather forecasting efforts, which will provide for enhanced firefighter safety.

Forest Service scientists are collaborating with National Forest System (NFS) land managers and the Center for 

Disease Control to examine the differences in health impacts between wildfires and prescribed fires. This 

collaboration will determine if current smoke management techniques aid in mitigating threats to human health.

Selected Examples of Recent Progress

Synthesis of Science to Inform Land Management Within the Northwest Forest Plan (NWFP) Area: In an 

unprecedented level of collaboration, Forest Service scientists and land managers worked in tandem to develop and 

publish a synthesis of the science over the last 20 years to inform land management decisions within the NWFP

area. This area includes 19.2 million acres on 17 national forests, 2.5 million acres of Bureau of Land Management 

lands, and about 2.3 million acres of National Park Service lands. This synthesis supports upcoming management 

planning and forest management on all Federal lands in the NWFP area but is expected primarily to inform 

impending revisions of Forest Service forest and resource management plans.

Wood Based Tornado Safe Rooms: Forest Service researchers designed a nonproprietary residential tornado safe 

room to be constructed from commodity wood building products. The safe room is designed to be buildable by a 

local contractor or a homeowner, and is adaptable to existing homes. The safe room meets the requirements of the 

International Code Council Standard for the Design and Construction of Storm Shelters (ICC-500, 2014). The safe 

room resisted the high pressures resulting from a 250 mph wind, withstood the highest speed debris impact tests of 

100 mph missile speed, and had a projected material cost of between $3,500 and $4,000.

Roads Best Management Practices: Since roads are the most common sources of sediment in forests, most forestry 

best management practices (BMPs) are implemented on forest roads. Across the nation, there are dozens of types of 

BMPs and hundreds of ways those BMPs are applied, but little information had been compiled that summarize and 

compare the effectiveness of similar BMPs or BMPs with the same intended outcome. Forest Service researchers 

compiled and published a comprehensive synthesis of the literature on the effectiveness of forest road BMPs. 

National forest resource specialists and engineers are among the major users of the literature synthesis, particularly 

during planning and resource impact analysis in the National Environmental Protection Act (NEPA) process.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Increasing the Pace and Scale of Forest Restoration: Two publications by Forest Service scientists provide the

foundation for the forest plans being developed by three of the eight early adopter national forests (Sierra, Sequoia 

and Inyo). The action proposed in the papers, using fire to restore and maintain remote forestlands, was directly 

incorporated into their forest plans. One means of changing current practices is to concentrate large-scale fuels 

reduction efforts and then move treated areas out of fire suppression into fire maintenance. A fundamental change in 

the scale and objectives of fuels treatments is needed to emphasize treating entire firesheds and restoring ecosystem 

processes.

Wildfire Effects on Water Supply: To create a tool to address wildfire-induced risks, Forest Service scientists 

collaborated with scientists from Canada and France to develop a spatially explicit index providing the first global 

assessment of wildfire impacts on water supply. These risks include post-fire damage to watersheds, scale of area 

impacted, soil erosion response to heavy rains, sedimentation, and the risk of these factors increasing over time. This 

framework introduces a tool for long-term monitoring of actions to reduce post-fire threats to water security.

Prescribed Fire and Air Quality: National forests in the western U.S. are increasingly using large prescribed fires and 

unplanned wildfires under favorable conditions to increase forest resilience and promote other resource objectives. 

Such efforts create a challenge for land managers and air regulators to minimize impacts to air quality in downwind 

communities. Forest Service scientists demonstrated that by using fire under favorable weather and fuel conditions, 

large areas of forest can be treated while keeping daily emissions below levels that are likely to cause harm to 

people in downwind communities.

Forest Inventory and Analysis

Current Activities

Originally authorized by the McSweeney-McNary Forest Research Act of 1928, and most recently in the Forest and 

Rangeland Renewable Resources Act of 1978, the Forest Inventory and Analysis (FIA) program is the Nation's 

foremost continuous forest census covering all 50 States. Working with State forestry agencies and other partners, 

FIA leverages one partner dollar for every six Federal dollars spent. FIA generates data 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.

Specifically Addressed Areas

Restructuring its data delivery system to the public, enabling big data analytics for geospatial data analysis, and 

deploying online tools for maps and story maps of status and change of forest resources to inform forest 

investments.

Continuing to implement the FIA Strategic Plan, including enhanced forest products monitoring and reporting 

through an annual sample of mills and other wood consuming facilities.

Selected Examples of Recent Progress

Expanding Urban FIA: In collaboration with State and local partners, the FIA program has expanded urban forest 

monitoring to include 26 cities. FIA recently crossed a major milestone with data collection underway in more than 

25 percent of the program’s proposed cities, making urban inventories active in all four national FIA units. The 

Urban FIA program uses established FIA monitoring methods, database and reporting tools, and statistical 

techniques, along with i-Tree software tools that quantify ecosystem services. The ultimate goal of this effort is to 

develop a seamless reporting system that uses the existing FIA protocols to provide new and valuable information 

on trees in previously unmeasured areas.

Comprehensive Inventory of Colorado’s Forests: The current inventory of Colorado’s forests is the first to use the 

complete set of FIA plots across all ownerships and forest types. The inventory was completed at a time when 

Colorado forests were undergoing substantial change, primarily in the form of insect infestations in pine and spruce, 

but also because of drought. This report captures the State’s current status and recent trends.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Forest and Rangeland Research Primary Authorities

Title of Act or 

Program Summary of Authority Expiration Date (if applicable)

Programs 

Affected

Public Law 

Citation

U.S.C. 

Reference

Forest and Rangeland 

Renewable 

Resources Research 

Act of 1978

An Act to direct the Secretary of 

Agriculture to carry out forest 

and rangeland renewable 

resources research, and for 

other purposes.

R&D P.L. 95-307 16 U.S.C. 1641 

et seq.

Agricultural Research, 

Extension, and 

Education Reform 

Act of 1998 

Requires the Secretary of 

Agriculture to establish a 

program to inventory and 

analyze, in a timely manner, 

public and private forests and 

their resources in the United 

States. 

R&D P.L. 105-185 16 U.S.C. 

1642(e)

Agricultural Act of 2014 Amends the Agricultural Research, 

Extension and Education 

Reform Act of 1998 to require 

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. Activities must 

be carried out in coordination 

with the Forest Service, 

including the Forest Product’s 

Laboratory.

9/30/2023 R&D P.L. 113-79 7 U.S.C. 9013

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.

R&D P.L. 93-378 16 U.S.C. 1601 

et seq.

Global Change Research 

Act of 1990

Establishes the Committee on Earth 

and Environmental Sciences to 

carry out the United States 

Global Change Research 

Program, including the Forest 

Service Global Change 

Research Program.

R&D P.L. 101-606 15 U.S.C. 2931
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Title of Act or 

Program Summary of Authority Expiration Date (if applicable)

Programs 

Affected

Public Law 

Citation

U.S.C. 

Reference

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 

Director 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

7 U.S.C. 6701 to 

6710

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

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

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
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Title of Act or 

Program Summary of Authority Expiration Date (if applicable)

Programs 

Affected

Public Law 

Citation

U.S.C. 

Reference

Research Grants Act of 

1958

Provides, authorized agencies 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 or 

institution. Such sums as are 

necessary; no expiration date.

R&D P.L. 85-934 42 U.S.C. 1891-

1893
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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STATE AND PRIVATE FORESTRY

LEAD-OFF TABULAR STATEMENT

Lead-Off Tabular Statement

Item Amount

2019 Annualized Continuing Resolution....................................................................................... $335,525,000 

Change in Appropriation ............................................................................................................... -153,229,000 

Budget Estimate, 2020................................................................................................................... 182,296,000 

APPROPRIATIONS LANGUAGE

The appropriations language follows (new language underscored; deleted matter enclosed in brackets):

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 as authorized, [$335,525,000]$182,296,000, to remain available through September 30, 

[2022]2023, as authorized by law: Provided, That of the funds provided under this heading, 

[$80,000,000]$65,930,000 is for National Fire Capacity, and [$16,000,000]$11,020,000 is for 

Rural Fire Capacity under section 10 of the Cooperative Forestry Assistance Act of 1978 (16 

U.S.C. 2106).

[Of the unobligated balances from amounts available under this heading and derived from the 

Land and Water Conservation Fund for the Forest Legacy Program from projects with cost 

savings or failed or partially failed projects for which funds were deobligated, $4,000,000 are 

hereby permanently cancelled.]

[Of the unobligated balances from prior year appropriations available under this heading, the 

following balances are hereby permanently cancelled: $1,000,000 from appropriations for 

Landscape Scale Restoration; $2,000,000 from appropriations for International Forestry; and 

$3,000,000 from appropriations for Urban and Community Forestry.] 

Change Description

The first change (second paragraph) removes cancellation language as no cancellations are proposed.

The second change (third paragraph) removes cancellation language as no cancellations are proposed.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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PROJECT STATEMENT

Project Statement (dollars in thousands), staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec. SY

2020 

Budget SY

Discretionary Appropriations:

Landscape Scale Restoration..... $13,910 2 $14,000 1 $14,000 1 -$14,000 -1 - -

FHM - Federal Lands................ 40,380 285 46,955 275 44,955 275 -3,244 -11 $41,711 264

FHM - Cooperative Lands ........ 33,698 90 38,158 126 38,130 125 -6,160 -48 31,970 77

Working Forest Lands............... 18,019 54 18,605 47 18,655 47 -933 - 17,722 47

Forest Legacy Program a........... 34,345 28 57,687 26 60,417 26 -60,417 -26 - -

Community Forest & Open 

Space Conservation ............ 1,892 - 4,000 - 4,000 - -4,000 - - -

Urban and Community Forestry 26,045 53 26,605 48 26,505 48 -26,505 -48 - -

International Programs.............. 7,043 51 9,352 46 8,010 28 -8,010 -28 - -

National Fire Capacity .............. - - 78,105 - 78,400 57 -13,789 -13 64,611 44

Rural Fire Capacity................... - - 16,000 - 16,000 - -4,980 - 11,020 -

State and Private Forestry –

Other b................................. 17,268 - 19,896 - 20,515 - -5,253 - 15,262 -

Subtotal.................................. 192,600 563 329,363 569 329,587 607 -147,291 -175 182,296 432

Supplemental Appropriations:

Emerg. Supp. (PL 115-123)...... - - 7,500 - - - - - - -

Total Adjusted Approp .......... 192,600 563 336,863 569 329,587 607 -147,291 -175 182,296 432

Rsc, Trns, Other (Net).................. 36,323 - 6,162 - 5,938 - -5,938 - - -

Total Appropriation .................. 228,923 563 343,025 569 335,525 607 -153,229 -175 182,296 432

Transfers In:

Fire Transfer Repayment .......... - - 21,249 - - - - - - -

Agency for International 

Development....................... - - 1,300 - - - - - - -

Subtotal.................................. - - 22,549 - - - - - - -

Transfers Out:

Forest Health to Department of 

Interior................................ -1,258 - - - - - - - - -

Fire Transfer ............................. -19,563 - -22,773 - - - - - - -

Subtotal.................................. -20,821 - -22,773 - - - - - - -

Rescission .................................... -15,502 - -5,938 - -5,938 - +5,938 - - -

Recoveries, Other (Net)................ 18,403 - 13,957 - 16,180 - - - 16,180 -

Bal. Available, SOY..................... 69,348 - 19,811 - 29,857 - +195,767 - 225,624

Total Available ......................... 280,351 563 370,631 569 375,624 607 +48,476 -175 424,100 432

Lapsing Balances ......................... -225 - - - - - - - - -

Bal. Available, EOY .................... -19,811 - -29,857 - -225,624 -48,476 - -274,100

Total Obligations ...................... 260,540 563 340,774 569 150,000 607 - -175 150,000 432

a Previously Forest Stewardship Program.

b Other includes cost pool authority.

Note: The project statement includes the supplemental appropriation while the Four-Year Summary of Appropriation does not.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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FOUR-YEAR SUMMARY OF APPROPRIATIONS AND STAFF YEARS

Four-Year Summary of Appropriations and Staff Years (dollars in thousands), staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019

Estimate SY

Inc. or 

Dec.

Chg 

Key SY

2020 

Budget SY

Landscape Scale 

Restoration.................. $14,000 2 $14,000 1 $14,000 1 -$14,000 (1) -1 - -

FHM - Federal Lands........ 55,500 285 55,500 275 55,500 275 -4,005 (2) -11 $51,495 264

FHM - Cooperative Lands. 39,000 90 41,000 126 41,000 125 -6,624 (3) -48 34,376 77

Working Forest Lands....... 20,036 54 20,500 47 20,500 47 -1,025 (4) - 19,475 47

Forest Legacy Program ..... 62,347 28 67,025 26 67,025 26 -67,025 (5) -26 - -

Community Forest & Open 

Space Conservation..... 2,000 - 4,000 - 4,000 - -4,000 (6) - - -

Urban and Community 

Forestry....................... 28,040 53 28,500 48 28,500 48 -28,500 (7) -48 - -

International Programs...... 8,000 51 9,000 46 9,000 28 -9,000 (8) -28 - -

National Fire Capacity ...... - - 80,000 - 80,000 57 -14,070 (9) -13 65,930 44

Rural Fire Capacity ........... - - 16,000 - 16,000 - -4,980 (10) - 11,020 -

State and Private 

Forestry Total .......... 228,923 563 335,525 569 335,525 607 -153,229 -175 182,296 432

JUSTIFICATIONS

Landscape Scale Restoration

(1) A decrease of $14,000,000 and 1 staff years ($14,000,000 and 1 staff years in 2019).

The Landscape Scale Restoration program enables States to pursue landscape scale projects that focus on priorities 

identified in their State Forest Action Plans and ensures the Nation’s non-Federal forestlands continue to provide 

public benefits by addressing threats to forest sustainability, such as wildfires and the spread of insects and disease.

Elimination of the program is proposed in FY 2020, because the Forest Service will focus on reducing wildland fire 

risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and contributing 

to rural economic prosperity.

Forest Health Management-Federal Lands

The Forest Health Management (FHM) – Federal Lands program works to detect, prevent, suppress, and monitor 

forest insects and diseases to protect the lands managed by the USDA Forest Service, as well as Federal lands in the 

jurisdiction of other Federal agencies and Tribal governments. The USDA Forest Service is the primary service 

provider to all Federal lands for these activities. Agency Forest Health staff are recognized as national and 

international leaders in forest entomology, pathology, invasive plants, and survey, monitoring, and suppression 

technologies.

Continuation of this program is critical because:

 The USDA Forest Service is uniquely equipped to deliver Federal forest health management across not only 

National Forest System (NFS) lands, but also to Federal and Tribal partners.

 The cost of an ongoing, sustained forest health program over time is modest compared to the high cost of 

inattention or inaction. Insects and diseases threaten more than 4 million acres across the United States.

FHM provides technical knowledge and applied science innovations to assist forest managers in making treatment 

decisions and taking actions to improve forest health. Program results are measured by acres of native and nonnative insects and pests treated on Federal lands. Funding for FHM-Federal Lands assures sustained investment in 

the health of our national forests, as well as other federally owned forest lands, and enables the agency to meet its 

core mission to successfully manage the productivity, resilience, and sustainability of this important national 

resource.

Funding for FHM-Federal Lands will continue to inform appropriate and timely responses that protect the Nation’s 

forests from insects and diseases. This data-driven program uses the most current survey data on landscape 

conditions to strategically target resources on NFS, other Federal, and Tribal lands.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Funds will be used to support 264 staff years and prioritized treatment of acres to reduce pest outbreaks, safety 

hazards, and fire risk.

The funding change is requested for the following items:

(2) A decrease of $4,005,000 and 11 staff years ($55,500,000 and 275 staff years available in 2019). In FY 2020, of 

the requested funding, $41,825,000 is the adjusted appropriation when accounting for $9,670,000 in cost pool

allocations.

At this funding level, the agency will prioritize treatments of federally-owned forests and grasslands to reduce

the potential for new outbreaks and address public safety and forest health needs arising from acres of 

dead and dying trees. The agency will continue to focus on the most pressing needs of forest restoration 

and treatment and reducing communities’ risk to catastrophic fire. For example, about $3.5 million will be 

used to treat at least 70,000 acres for southern pine beetle on NFS lands. This will increase the health and 

resilience of these forests, support rural economies, and reduce infestation risk to adjacent lands and 

communities. The table below highlights funding for major insects, diseases, and invasive plants.

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 2018 

Actual

FY 2019

Estimate

FY 2020 

Budget

Asian Longhorned Beetle (Total) $119 $119 $98

SPF - - -

RD 119 119 98

Douglas-fir Tussock Moth (Total) 33 33 -

SPF 33 33 -

RD - - -

Emerald Ash Borer (Total) 1758 1633 1,436

SPF 512 512 500

RD 1246 1121 936

Gold Spotted Oak Borer, Thousand Canker Disease, Laurel Wilt (Total) 552 552 57

SPF 483 483 -

RD 69 69 57

Gypsy Moth (Total) 8,272 8,172 5,466

SPF 7,846 7,846 5,200

RD 426 326 266

Hemlock Woolly Adelgid (Total) 2,624 2,657 1,601

SPF 1,770 1,770 900

RD 854 887 701

Invasive Plants (Total) 3,185 3,308 2,185

SPF 1,755 1,755 1,000

RD 1,430 1,553 1,185

Oak Wilt (Total) 499 499 274

SPF 425 425 200

RD 74 74 74

Port Orford Cedar Root Disease (Total) 20 20 -

SPF 20 20 -
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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RD - (Research Appropriation) SPF – (State and Private Forestry, Forest Health 

Appropriation)

FY 2018 

Actual

FY 2019

Estimate

FY 2020 

Budget

RD - - -

Sirex Woodwasp (Total) 365 336 185

SPF 80 80 -

RD 285 256 185

Southern Pine Beetle (Total) 4,898 4,843 3,998

SPF 4,500 4,400 3,500

RD 398 443 498

Subterranean Termites (Total) 1,202 1,200 827

SPF - - -

RD 1,202 1,200 827

Sudden Oak Death (Total) 1,848 1,500 1,041

SPF 1,560 1,210 750

RD 288 290 291

Western Bark Beetles (Total) 4,875 4,725 3,540

SPF 4,325 4,200 3,000

RD 550 525 540

Whitebark Pine Pests (Total) 100 100 -

SPF 100 100 -

RD - - -

White Pine Blister Rust (Total) 580 360 129

SPF 360 360 -

RD 220 - 129

Total Funding 30,930 30,057 20,837

SPF 23,769 23,194 15,050

RD 7,161 6,863 5,787

Forest Health Management-Cooperative Lands

Base funds for Forest Health Management (FHM)-Cooperative Lands maintains and restores forest lands damaged 

by insects, disease, and invasive plants. Activities are coordinated and carried out in cooperation with State and local 

public land partners and private forest landowners. These are lands owned by States, local governments, private 

timber industry organizations, and individual landowners.

Continuation of this program is critical because:

 Forest pests know no boundaries. The agency takes an all-lands approach to detection, prevention, suppression, 

and monitoring activities through partnerships with all stakeholders involved in maintaining healthy, sustainable 

forests.

 Forest Service Forest Health staff are recognized as national and international leaders in forest entomology, 

pathology, invasive plants, and survey, monitoring, and suppression technologies.

Program results are measured by acres of native and non-native insects and pests treated on non-Federal lands. The 

FHM-Cooperative Lands program helps forest managers work together and across boundaries. Together with the 

FHM-Federal Lands program, the Forest Service works across national forest, State, Tribal, and private forest 

boundaries to address pests on a landscape scale.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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FHM-Cooperative Lands funding emphasizes cooperation and collaboration between the USDA Forest Service and 

its partners - principally State and local governments, State foresters, and private landowners. FHM-Cooperative 

Lands will continue to fund assessment and evaluation of forest insects and diseases across the Nation.

Funds will be used to support 77 staff years and prioritized treatment of acres to reduce pest outbreaks, safety 

hazards, and fire risk.

The funding change is requested for the following items:

(3) A decrease of $6,624,000 and 48 staff years ($41,000,000 and 125 staff years available in 2019). In FY 2020, of 

the requested funding level, $31,993,000 is the adjusted appropriation when accounting for $2,383,000 in cost 

pool allocations.

The agency will provide financial assistance to States to treat State and private lands for insect, disease, and 

invasive plant issues. This supports State Forest Action Plan priorities and addresses management needs 

determined at the State level through shared decision making. For example, over 300,000 acres will be 

treated across boundaries to control gypsy moth and reduce the negative impacts of this exotic species to 

priority landscapes and watersheds. Funding will be prioritized to assess forest conditions on all forested 

lands (over all ownerships) to ascertain the status of pest conditions and trends, support sustainable 

ecosystem health, and detect outbreaks of the dozens of diseases and invasive pests that affect all forests 

each year, irrespective of jurisdiction. The FHM-Cooperative Lands funds will be prioritized to ensure that

stewards of State and local public lands and private forest partners continue to have capacity to 

successfully manage their forested lands for the good of all public and private forests in the Nation.

Working Forest Lands (previously Forest Stewardship)

This is the primary Forest Service program focused on private forestland management and conservation, helping 

private landowners address resource management concerns.

Continuation of the program is critical because:

 Actively-managed private forests provide timber, wildlife habitat, watershed protection, recreational 

opportunities, and many other benefits for landowners and communities.

 Better management of private lands supports the maintenance of nearby national forests and grasslands.

 The program creates jobs in rural communities by sustaining local forest product markets and increasing 

demand for qualified private forestry consultants, loggers, and State agency field foresters.

Two-thirds of the Nation’s forests are privately owned. Program funding will assist landowners in addressing 

resource management concerns through a national network of forestry professionals. The agency will offer a variety 

of educational and technical assistance programs and activities, including comprehensive, multi-resource Forest 

Stewardship Plans.

Funds will be used to support 47 staff years and coordinated technical assistance to address diverse landowner 

needs.

(4) A decrease of $1,025,000 ($20,500,000 and 47 staff years available in 2019). In FY 2020, of the requested 

funding level, $17,675,000 is the adjusted appropriation when accounting for $1,800,000 in cost pool

allocations.

The Working Forest Lands program will conserve and manage working forests for multiple values and will 

focus on priority areas identified in State Forest Action Plan to ensure family forests continue to provide 

numerous public benefits. These public benefits include wildland fire risk reduction, water security, and 

rural economic development achieved through local collaboration across public and private lands.

Forest Legacy Program

(5) A decrease of $67,025,000 and 26 staff years ($67,025,000 and 26 staff years in 2019).

The Forest Legacy Program allows for the protection of critical forest landscapes threatened by land conversion to 

non-forest use through conservation easements and fee-simple purchases with partners. Since its authorization in 

1990, the Forest Legacy Program has funded the protection of 2.625 million acres nationwide. This program does 

not add to the Federal estate, but rather assists stakeholders to conserve local working forests.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Elimination of the program is proposed in FY 2020, because the Forest Service will focus on reducing wildland fire 

risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and contributing 

to rural economic prosperity.

Community Forest and Open Space Conservation

(6) A decrease of $4,000,000 ($4,000,000 and 0 staff years available in 2019).

Through the Community Forest and Open Space Conservation (CFP) program, the Forest Service provides financial 

assistance grants to local governments, Tribes, and qualified nonprofit organizations to establish community forests.

CFP creates community forests through land acquisition and allows for land protection for qualified entities that 

have demonstrated a sustained commitment to community forestry. Funding in support of CFP projects is distributed 

through competitively awarded Federal grants.

Elimination of the program is proposed in FY 2020, because the Forest Service will focus on reducing wildland fire 

risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and contributing 

to rural economic prosperity.

Urban and Community Forestry

(7) A decrease of $28,500,000 and 48 staff years ($28,500,000 and 48 staff years in 2019).

The Urban and Community Forestry program leverages State and other partner resources to ensure communities 

across the Nation have the tools and tested knowledge necessary to sustainably manage their forests and the 

economic, environmental, and health benefits they provide.

Elimination of the program is proposed in FY 2020, because the Forest Service will focus on reducing wildland fire 

risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and contributing 

to rural economic prosperity.

International Programs

(8) A decrease of $9,000,000 and 28 staff years ($9,000,000 and 28 staff years in 2019). No funding is requested in 

FY 2020. This program was proposed for elimination in FY 2019.

The International Forestry program 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.

The program supports the highest priorities of International Forestry in combatting illegal logging, supporting 

American forestry in international trade, protecting U.S. forests from invasive species, and conserving habitat for 

U.S. migratory species.

Elimination of the program is proposed in FY 2020, because the Forest Service will focus on reducing wildland fire 

risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and contributing 

to rural economic prosperity.

National Fire Capacity

The National Fire Capacity program provides financial assistance through partnership agreements with State 

Foresters for the prevention, mitigation, control, and suppression of wildfires on non-Federal lands. Collaboration 

between government and non-government entities is important to achieving an effective, all-lands approach to 

wildland fire management, and contributes to the preservation of life and property.

Continuation of this program is critical because:

 The National Fire Capacity program addresses the current trend of longer and more severe fire seasons by 

increasing capacity of State foresters for the prevention, mitigation, control, and suppression of wildfires on 

non-Federal lands.

 The Forest Service’s strong relationship with State forestry agencies, as well as the agency’s capacity and 

expertise in wildland fire management, makes it the leader in program delivery.
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National Fire Capacity funding helps State and local agencies implement fire prevention and mitigation programs 

and develop and maintain an effective wildfire suppression capability as described in a State’s Forest Action Plan. 

The 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 the program 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 program improves local capacity to assist with other Federal, State, and local agencies in 

aiding communities affected by non-fire emergencies such as hurricanes and floods.

Funds will be used to support 44 staff years, help guide fire suppression efforts, demonstrate and account for the 

effectiveness of Hazardous Fuels treatment, inform the allocation of funding for fuels management and restoration, 

and identify opportunities to use biomass from forest thinning treatments.

(9) A decrease of $14,070,000 and 13 staff years ($80,000,000 and 57 staff years available in 2019). In FY 2020, of 

the requested funding level, $64,368,000 is the adjusted appropriation when accounting for $1,562,000 in cost 

pool allocations.

Funding will be targeted to support activities on fire-affected landscapes to sustain forest health, reduce the 

risk of damaging wildland fires, and ensure firefighter safety. Funding will be used to support risk 

assessments and fire management planning projects in communities nationwide. Hazardous fuels 

treatments in the WUI, firefighter training, and prevention and education programs are also provided by 

this program. Additionally, program funds are invested in the purchase, maintenance, and rehabilitation of 

needed firefighting equipment for State agencies.

Rural Fire Capacity

The Rural Fire Capacity program provides technical and financial assistance to qualifying local volunteer fire

departments that protect communities with populations of 10,000 or less.

Continuation of this program is critical because:

 Local fire departments are often the first to respond to wildfire, but often lack the financial and technical 

resources to obtain the equipment and training necessary to ensure safe and effective wildfire response.

 Program funding helps Federal, State, and local agencies deliver a uniform and coordinated suppression 

response to wildfire by training, equipping, and organizing volunteer fire departments.

The Rural Fire Capacity program, delivered through the State Foresters, supports local fire preparedness and 

suppression efforts to protect State and private forestlands threatened by wildfire. Fires in rural areas displace people 

and eliminate jobs. The program enhances stability in rural areas by reducing fire-caused loss of human lives, 

natural resources, crops, homes, community infrastructure and facilities, and rural businesses. Rural 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 WUI. These initiatives combine to create more fire-adapted communities. 

Recipients match grants dollar-for-dollar to maximize the value of the Federal investment.

The funding change is requested for the following items:

(10)A decrease of $4,980,000 ($16,000,000 and 0 staff years available in 2019).

Funding will be prioritized to assist local communities in rural areas to prepare for, mitigate, and respond to 

wildfires, and to reduce the risk, cost, and impact of wildfires. Funds will be used to provide grants for 

equipment, training, and technical assistance in organizing or expanding rural fire departments where little 

or no fire protection is available.

Other

This line identifies projected cost pool amounts for the requested appropriation in the following amounts:

A) From Forest Health Management-Federal Lands: $9,670,000.

B) From Forest Health Management-Cooperative Lands: $2,383,000.

C) From Working Forest Lands: $1,800,000

D) From National Fire Capacity: $1,562,000

E) Total $15,262,000 cost pool allocations proposed in FY 2020.
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CLASSIFICATION BY OBJECTS

Classification by Objects (dollars in thousands)

Item 

No. Item 2017 

Actual

2018 

Actual

2019 

Estimate

2020

Budget

Personnel Compensation:

11.0 Total personnel compensation............................................. $47,696 $61,350 $65,447 $46,578

12.0 Personnel benefits............................................................... 16,249 20,919 22,316 15,882

13.0 Benefits for former personnel.............................................. 78 266 284 202

Total, personnel comp. and benefits................................. 64,023 82,535 88,047 62,662

Other Objects:

21.0 Travel and transportation of persons................................... 3,658 4,807 1,153 1,626

22.0 Transportation of things...................................................... 512 673 161 228

23.1 Rent payments to GSA........................................................ 2,081 2,735 656 925

23.2 Rental payments to others................................................... 1,107 1,455 349 492

23.3 Communications, utilities, and misc. charges ..................... 1,475 1,938 465 656

24.0 Printing and reproduction.................................................... 448 589 141 199

25.1 Advisory and assistance services ........................................ 12 16 4 5

25.2 Other services...................................................................... 15,207 19,983 4,794 6,758

25.3 Purchases of goods and services ......................................... 6,621 8,701 2,087 2,943

25.4 Operation and maintenance of facilities.............................. 44 58 14 20

25.5 Research and development contracts................................... 29 38 9 13

25.6 Medical care........................................................................ 3 4 1 1

25.7 Operation and maintenance of equipment ........................... 223 293 70 99

26.0 Supplies and materials......................................................... 1,798 2,363 567 799

31.0 Equipment........................................................................... 1,121 1,473 353 498

32.0 Land and structures............................................................. 6 8 2 3

41.0 Grants, subsidies, and contributions.................................... 162,141 213,066 51,116 72,060

42.0 Insurance claims and indemnities........................................ 31 41 10 14

Total, other objects........................................................... 196,517 258,239 61,953 87,338

99.9 Total, new obligations................................................... 260,540 340,774 150,000 150,000

DHS Building Security Payments (included in 25.3) ............. 11 10 10 10 

Position Data:

Average Salary (dollars), ES Position................................. 171,059 171,080 173,646 176,251

Average Salary (dollars), GS Position................................. 84,602 87,496 88,808 90,141

Average Grade, GS Position ............................................... 10.9 10.7 10.8 10.8
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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STATUS OF PROGRAMS

The Forest Service, State forestry organizations, American foresters, and stakeholders have a long history of 

cooperation and coordination; working across boundaries to manage the complexities of protecting and improving 

the Nation’s forests – an “all lands” approach that enhances forest health everywhere.

Landscape Scale Restoration

Current Activities

The Landscape Scale Restoration (LSR) program funds competitive cross-boundary projects in high-priority areas 

by leveraging State capacity with strategic Federal investments. The program helps ensure the Nation’s non-Federal 

forestlands continue to provide public benefits by enabling States to develop and pursue innovative landscape-scale 

projects that focus on priorities identified in State Forest Action Plans and deliver on-the-ground results.

By addressing threats to forest sustainability, such as damaging wildfires or the spread of insects and disease, these 

projects also benefit adjacent National Forest System lands, creating healthier, more resilient landscapes overall.

Specifically Addressed Areas

An LSR Interactive Map Viewer that allows the public to search 700 LSR projects by State and Fiscal Year. Since 

2014, LSR grant recipients have uploaded impact areas to the LSR Accomplishment Database. The new LSR 

Interactive Map Viewer utilizes that spatial data to demonstrate how projects complement other landscape-scale 

initiatives, national forest projects, or priority areas for water, wildfire, insects, and diseases.

Selected Examples of Recent Progress

Restoration in the Clearwater River basin (Idaho): The forested mountains and streams of the Clearwater River 

basin provide clean water, recreation opportunities, and critical habitat for anadromous fish species such as 

steelhead, chinook salmon, and coho salmon. The 2015 Clearwater Complex Fire burned over 47,000 acres of 

public and private land in the basin and resulted in an increased risk of landslides and sedimentation in the 

basin’s creeks and streams. Fishing and recreation are important drivers of the local economy; therefore,

sedimentation impacts on the watershed were a major concern. This project initiated post-fire recovery and 

restoration work on private lands most impacted by the fire through tree plantings. Trees hold the soil in place 

reducing sedimentation and run-off into the watershed. Project funds were used to plant 35,000 seedlings in the 

spring of 2018, with another 100,000 planned for the spring of 2019. Combined with restoration work on 

nearby public lands, this project will accelerate restoration in the Clearwater River basin.

Sustaining hemlocks in North Carolina (North Carolina): Hemlock woolly adelgid, an introduced and invasive 

forest insect, has heavily impacted native hemlock forests throughout the eastern United States. If left 

unchecked, loss of hemlock forests will result in a loss of food and shelter for wildlife and impact water 

quality. Recent advances to control and manage the insect, together with State-level support, provide new 

opportunities to conserve more of North Carolina’s hemlocks while the scientific community develops longerterm strategies. Initiated in 2018, this project uses the latest insect control measures and expedites the treatment 

of currently unprotected hemlock stands on both public and private lands to retain the genetic diversity of 

hemlocks and the vital benefits they provide, while simultaneously developing and integrating long-term 

sustainable strategies.

Improving habitat, oak regeneration, and forest health in the Driftless Area (Iowa and Wisconsin): The Driftless 

Area in Iowa and Wisconsin is a widely recognized priority landscape that provides critical migratory habitat for 

neotropical songbirds. This multi-State region is facing challenges with oak regeneration and retention on private 

land. By engaging private forest landowners and motivating them to act on their land, this project restores and 

maintains woodlands, and retains and develops habitat for migratory neotropical song birds. These on-the-ground 

actions to preserve native oak habitat also support clean air and water, fish and wildlife habitat, and outdoor 

recreation opportunities. To date, project partners completed 89 Forest Stewardship Plans covering nearly 4,700 

acres of priority habitat in Forest Conservation Areas and Bird Conservation Areas located on private land. 

Landowners with forest management plans are more likely to actively manage their land than those without 

management plans, resulting in healthy and productive forests.

Forest Health Management on Federal Lands

Current Activities

Damage to forests from insects and diseases is costly, especially when uncontained or improperly managed. 

Reduced timber volume, loss of recreation opportunities, watershed and water supply impacts, increased safety 
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hazards on forested lands, and increased chance of abnormally severe wildland fire can all be mitigated through 

efficient, effective forest health management.

The Forest Health Management on Federal Lands program (FHM-Federal Lands) helps the National Forest System 

and other Federal lands in active management to suppress forest insects and diseases. FHM-Federal Lands’ work 

includes technical assistance and suppression and eradication efforts, as well as long-term management strategies to 

slow the spread of certain forest insects and diseases. FHM-Federal Lands funds Federal forest health monitoring 

activities which gather data and review forest health conditions across Federal forested lands in the United States. 

The program produces annual reports called “Forest Health Monitoring: Status, Trends and Analysis.”

Specifically Addressed Areas

Addressing a rapid infestation of southern pine beetle in the southeast. On national forests in Mississippi, Alabama, 

Georgia, and South Carolina, FHM-Federal Lands is working closely with regional and national staffs to accelerate 

treatments and reduce the impact of southern pine beetle onto adjacent – including private – lands and protect redcockaded woodpecker habitat. In FY 2018, aggressive and strategic treatment of a southern pine beetle infestation 

successfully contained economic and ecological disruption to approximately 20,000 acres. With millions of acres of 

high-risk pine stands on these forests, potential impacts could reach 100,000 acres without aggressive treatments. 

FHM-Federal Lands continues to support the proactive effort to address this emergent challenge and reduce future 

impacts

Selected Examples of Recent Progress

The Forest Service is expanding the data collection system, Digital Mobile Sketch Mapping (DMSM), to provide 

increased precision, efficiency, and effective treatment targeting. In Hawaii, DMSM technology is being used to 

track the spread of rapid ōhi’a death. Since data is immediately uploaded after capture, reporting is timelier and 

supports field activities. The increase in survey capacity and the ability to turn data into treatment action on the 

ground is invaluable for focusing to highest risk areas and allows for rapid response to insect and disease activity. 

The system is roughly 90 percent less costly than earlier technology.

Increasing access and raising awareness: FHM-Federal Lands has contributed to the Forest Service National 

Invasive Species Issue Team (NISIT), a key group coordinating invasive species activities around Forest Service 

Research and Development, State and Private Forestry, and the National Forest System, as set forth in the Forest 

Service National Strategic Framework for Invasive Species Management. Technology transfer manuals for land 

managers and a Spanish language “I’ve Got One” app have increased access to invasive plants identification and 

management, including implementation of biocontrol.

Forest Health Management on Cooperative Lands

Current Activities

Pest management methods are more effective in an all-lands approach. Threats do not stop at the wildland-urban 

interface, the State line, or property lines. Forest Health Management on Cooperative Lands (FHM-Cooperative 

Lands) works with States, the District of Columbia, U.S. Territories, and Freely Associated States to provide 

technical and financial assistance to monitor, assess, and mitigate forest health threats on non-Federal lands.

FHM-Cooperative Lands considers an entire landscape and treats both public and private lands in an ecologically 

responsible and economically efficient manner. Investments in this program are typically matched dollar for dollar 

by partners.

FHM-Cooperative Lands works in partnership with State land management agencies to conduct aerial detection 

surveys on forested lands, recording approximately 5,000 flight hours and surveying about 500 million acres in FY 

2018. Aerial survey work includes sketch mapping – observation and mapping of forest health conditions on the 

ground – and other forms of remote sensing, such as satellite imagery and aerial photography. The equipment and 

technical expertise required to conduct these surveys provide job opportunities and economic benefits to rural 

communities. The program produces an annual conditions report titled “Forest Health Highlights”.

Specifically Addressed Areas

FHM –Cooperative Lands works with partners in the Department of the Interior Bureau of Indian Affairs, Bureau of 

Land Management, and National Park Service to treat lands that are infested with dwarf mistletoe, a parasitic plant 

affecting the growth and health of conifers. Forest management techniques to prune or remove infested trees were 

conducted in FY 2018, with Forest Service technical and financial assistance, on approximately 1,700 acres in one 

national park and with five Tribes from Arizona to Washington.
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Selected Examples of Recent Progress

The gypsy moth Slow-the-Spread program continues to be an effective program that reduces the spread of gypsy 

moths from North Carolina to Minnesota. Gypsy moths feed on the foliage of hundreds of species of plants in North 

America, most commonly oak and aspen. When gypsy moth densities reach very high levels, trees may become 

completely defoliated. Several successive years of defoliation may ultimately result in tree mortality. The Slow-the 

Spread program targets low populations of gypsy moths along the leading edge of the infestation before they 

develop into larger populations that require more costly suppression methods. In FY 2018, the program treated more 

than 20,000 acres of Federal lands, including 2,000 acres of Department of Defense lands and 18,000 acres of 

National Forest System lands. These acres were treated with pheromones to disrupt the mating of gypsy moths, with 

no impact on non-target species.

Building cooperative relationships: FHM-Cooperative Lands has developed integrated relationships with the Forest 

and Rangeland Management program to cooperate on shared interests and cooperative actions in the areas of Forest 

Genetic Conservation and Restoration and Invasive Plant Species. FHM-Cooperative Lands is leading efforts to 

support seed collections of at-risk tree species for genetic conservation and has supported seed collections of more 

than 20 tree species to date. FHM-Cooperative Lands partnered with the American Public Gardens Association to 

conserve at-risk tree species where seeds cannot be stored long-term. The project has successfully supported a 

network of botanical gardens and arboreta to build collections of eight at-risk tree species for propagation and future 

out-plantings.

Working Forest Lands (Previously Forest Stewardship Program)

Current Activities

Actively-managed State and private forests provide timber, wildlife habitat, watershed protection, recreational 

opportunities, and many other benefits for landowners, communities, and nearby national forests and grasslands at a 

landscape scale. More than half of the forest land in the United States (441 million acres) is owned and managed by 

some 11 million private forest owners. The Working Forest Lands program focuses on active management and 

conservation, providing non-industrial private forest landowners with technical assistance and tools, such as forest 

management plan development, to help them enhance and sustain the productivity, health, and resilience of their 

land and forest resources. Additional attention is given to landowners in landscape areas identified by State Forest 

Action Plans and those new to, or in the early stages of, managing their land. The program creates jobs in rural 

communities by sustaining local forest product markets and increasing demand for qualified private forestry 

consultants, loggers, and State agency field foresters.

Assistance offered through the Working Forest Lands program qualifies landowners to access multiple services and 

incentives, such as USDA conservation programs, forest certification programs, forest product and ecosystem 

service markets, and tax incentives. The Forest Service maintains longstanding partnerships with the USDA Natural 

Resource Conservation Service (NRCS), the American Forest Foundation, the National Association of Conservation 

Districts, the National Association of State Foresters, university extension, and other partners to coordinate and 

streamline technical assistance and address diverse landowner needs.

Specifically Addressed Areas

A team of external partners and Forest Service staff are developing options for modernizing the Working Forest 

Lands program to better focus and prioritize the Federal investment, achieve outcomes on priority lands, serve 

landowners, and leverage partnerships. Implementation of the restructured Working Forest Lands program is 

anticipated in 2020.

Supporting forest products markets, such as mass timber products (also known as wood-based engineered 

construction materials), can reduce wildfire risk by removing and utilizing hazardous fuels as wood products, 

support rural economic development, and contribute to a more sustainable building sector. Landowners with access 

to markets are more inclined to keep their forests as forests rather than convert the land to other uses. With critical 

support from the Forest Service in the form of grants, agreements, and market development support, the forest 

products industry is on the cusp of major developments in the mass timber products marketplace, with four factories 

in production, six factories coming online (either under construction or just completed), and three additional

factories recently announced in eight states. Most of these factories will support rural economies.

Selected Examples of Recent Progress

NRCS/FS Spatial Analysis Project: The Forest Service partnered with NRCS to cross-walk Working Forest 

Lands Management Plan data with NRCS forest practice data to better understand how shared customers are 

utilizing and accessing program support. The project was designed to eliminate duplication of effort between 
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the agencies, resulting in program efficiencies and improved customer service. Improved efficiencies resulted 

in increased capacity to provide technical assistance to private landowners in developing Working Forest 

Lands Management Plans and competing for funding through the NRCS Environmental Quality Incentives 

Program (EQIP). Additional analysis in FY 2019 will determine the level of EQIP financial assistance funds 

that have been unlocked through greater efficiencies and improved capacity to develop Working Forest Lands 

Management Plans.

Women Owning Woodlands: The Forest Stewards Guild, in partnership with the Working Forest Lands 

Program, is strategically expanding the national Women Owning Woodlands network to strengthen the 

connections between women woodland owners and their land to advance the stewardship of America’s 

privately-owned forestlands. This project has targeted and invested in an underserved constituency: women 

woodland owners who have the potential to influence the decisions on more than 290 million acres of familyowned forest lands. The project supports women woodland owners across the country by providing education 

and technical assistance through websites, workshops, and outreach. Providing access to the tools and 

knowledge needed to efficiently and sustainably manage family-owned woodlands nationwide has broad 

benefits, including increasingly sustainable forests, increased forest products output, economic growth, clean 

water, improved wildlife habitat, maintenance of open space, and improved coordination to manage forests 

across ownership boundaries. In FY 2018, through this program, the Forest Stewards Guild connected with 

women woodland owners through field trips, a hazard assessment workshop, multiple conference calls and 

event planning efforts, webinars, articles posted to the Women Owning Woodlands website, and facilitation of 

a Women Owning Woodlands professionals Google Group with 125 members. As a result, coordinated and 

informed decisions are being made by forest landowners that will determine the amount and vitality of forested 

lands for decades to come.

Forest Legacy Program

Current Activities

Two-thirds of the Nation’s forests are privately owned. Conservation across landscapes and ownerships is essential 

to addressing large-scale conservation issues, including watershed protection, reduced wildfire risk, and protection 

of at-risk species. Intact private forests provide clean drinking water, access for recreation opportunities, and 

revenue from ranching, hunting leases, forest products, and outdoor tourism.

The Forest Legacy Program (FLP) protects critical forest landscapes threatened by land conversion through 

conservation easements and fee-simple purchases in partnership with State agencies and private landowners. To 

select projects for funding, the FLP uses a competitive process. By the end of FY 2018, the FLP had conserved a 

total of 2.8 million acres, including 66,000 acres in that fiscal year. The conserved acres include more than 176,000 

acres of water bodies and 3,300 miles of streams. The program does not add to the Federal estate, but rather assists 

landowners to conserve and actively manage private working forests. Historically, the FLP leverages more than one 

dollar for every Federal dollar spent.

Specifically Addressed Areas

Continuing research to evaluate the impact of FLP projects on local economies to select and fund projects that 

promote rural prosperity and collaborative efforts to address cross-boundary landscape conservation.

Evaluation of new available spatial data to determine areas where program investment has resulted in fostering 

landscape resiliency, adaptive management, and exchange of natural resource information and expertise. That 

information will be used to improve strategic project development into the future, ensuring the best use of resources 

to meet strategic objectives.

Selected Examples of Recent Progress

Mahoosuc Gateway/Success (New Hampshire): This is a conservation easement project that was completed in 2018 

and consists of two contiguous parcels that conserved 24,200 acres of sustainably managed working woodland. The 

land is adjacent to downtown Berlin, the largest city in Coos County, which is an area heavily reliant on forest-based 

jobs and vulnerable to conversion to non-forest uses. The project is central to a mosaic of public lands spanning the 

New Hampshire/Maine border, including the White Mountain National Forest, the National Appalachian Scenic 

Trail, and Umbagog National Wildlife Refuge. The project is key to a bi-State economic and conservation initiative 

to sustain the forest industry and develop world-class outdoor recreation in the Mahoosuc Region, including hunting, 

fishing, hiking, and motorized recreation. These lands provide critical habitat for rare, threatened, and endangered 

species, including the federally threatened Canada lynx. The newly conserved tracts include more than 35 square 

miles of the Androscoggin watershed, 78 miles of perennial streams, and 467 acres of ponds and lakes.
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Grassy Cove (Tennessee): Completed in 2018, this 956-acre fee acquisition is composed of three tracts. 

Conservation of the entire 956-acre tract will protect the karst forests of Bear Den and Brady Mountains, which 

converge to enclose Grassy Cove. Grassy Cove, the largest sinkhole in North America, is surrounded by the 

Cumberland Mountains. Eighteen species of greatest conservation need have been documented on the property. The 

property protects the viewshed of the adjacent Cumberland Trail State Park, Tennessee's only linear park. The 

property will be managed by the Tennessee Department of Environment and Conservation to provide recreational 

opportunities including access to eight caves on the property. The property provides a buffer protecting water quality 

as it flows down Bear Den and Brady Mountains into Grassy Cove Creek. The creek sinks into the underlying karst 

passages, ultimately forming the headwaters of the Sequatchie River, a primary tributary to the Tennessee River.

Whitefish Lake Phase 1 (Montana): This conservation easement project, completed in 2018, helps sustain local 

timber jobs, conserve critical habitat, guarantee public access, and protect the city's water supply. Whitefish Phase 1 

completes protection of a 7,018-acre parcel identified as a top international conservation priority in the Crown of the 

Continent eco-region. This landscape linkage is also important for lynx, wolverine (a candidate for Endangered 

Species Act listing), gray wolf, mountain lion, and elk. This project produces around 2.4 million board feet of 

merchantable timber each year. The property supports roughly 24 full-time workers in the wood products industry 

and is located within a watershed that provides 20 percent of the Whitefish city water supply. The project will 

guarantee permanent public access to the property for a wide range of outdoor recreational opportunities, including 

fishing, hiking, mountain biking, horseback riding, berry picking, snowmobiling, back-country skiing, and hunting. 

The property also provides access for local residents and tourists to the adjacent Stillwater State Forest and, through 

the State Forest, the Flathead National Forest.

Program Evaluations

The General Accounting Office (GAO) is completing an audit of work in the Forest Service funded by the Land and 

Water Conservation Fund (LWCF). The audit final report is anticipated in early calendar year 2019.

Community Forest and Open Space Conservation

Current Activities

The Community Forest and Open Space Conservation program (CFP) provides financial assistance grants to 

local governments, Tribes, and qualified nonprofit organizations to acquire and establish working community 

forests that provide public benefits. Authorized in 2008, the CFP final rule was issued, and the first grants were 

awarded in FY 2012. Projects are selected through a competitive process that evaluates community benefits, 

contribution to landscape conservation initiatives, and likelihood of land conversion. In FY 2018, nine new 

grants were awarded, and the program protected three tracts of land totaling 1,568 acres. Total program 

accomplishments exceed 12,300 acres. Many community forests provide benefits similar to those of the 

National Forest System, including clean drinking water, wildlife habitat, public access and recreation 

opportunities, economic benefits from timber and non-timber products, and educational opportunities to local 

communities.

Specifically Addressed Areas

Working with partners to evaluate past projects and the economic effects of projects on communities. Review of the 

case studies will enrich the agency’s understanding of project outcomes and help communities understand the 

advantages and benefits of creating community forests.

Interest in CFP continues to grow nationally. There has been an increase in the number of grant applications in FY

2018 with a corresponding 30 percent increase in funding requests over last year. To address the increase and select 

projects that best address conservation and community benefit objectives, the Forest Service is working to develop a 

more robust process to adequately review, evaluate, and prioritize projects, including an updated project scoring and 

selection process.

Selected Examples of Recent Progress

Page Pond Community Forest (New Hampshire): Situated just a quarter mile from the shore of Lake Winnipesaukee 

in New Hampshire, Page Pond Community Forest is now one of the Town of Meredith’s largest tracts of protected 

land. The first phase of the project was completed in 2009. In FY 2018, the acquisition using CFP funds added 

nearly 200 acres to the 567-acre forest. With frontage on a well-traveled road near the town center and the lake, the 

property was once slated for residential development. Now, the public enjoys miles of walking trails that wind 

through the diverse forest, rich with historical remnants and native wildlife.
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Hidden Valley Nature Center (Maine): The Hidden Valley Nature Center permanently protected over 950 acres in 

2018 with a CFP grant. The property features pristine ponds, vernal pools, a kettle hole bog with boardwalk, 

wetlands, dramatic topography, campsites, six overnight accommodations, and a mile of shore frontage on Little 

Dyer Pond, all knit together by more than 25 miles of trails. The nature center has about 7,000 visitors annually. 

Hidden Valley is a community forest owned by the Midcoast Conservancy, an organization dedicated to naturebased education, non-motorized outdoor adventure, and sustainable forestry. Midcoast Conservancy practices,

demonstrates, and teaches others about low-impact sustainable forestry. It also hosts events that include courses on 

timber frame construction, chainsaw safety, forest ecology, “Women and Our Woods” workshops, and trail building.

Urban and Community Forestry

Current Activities:

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 for communities of all sizes to 

conserve, protect, and enhance trees in communities. In FY 2018, the program assisted more than 8,000 

communities to better manage their trees to produce public benefits. Well managed trees improve the economic 

vitality, health and livability of towns. 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.

The UCF program supports critical regional planning and strategic collaboration to sustain community tree 

canopy benefits across jurisdictional boundaries. Urban and community forests can serve as a gateway for 

invasive pests and diseases; maintaining the health of these forests protects the Nation’s forests, including the 

national forests. The Forest Service works with State forestry agencies and other partners to support sciencebased management of urban and community 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.

Specifically Addressed Areas

Creating American Jobs: Arboriculture, landscape design and maintenance, horticulture, and other green professions 

are growth industries with an annual economic impact nationally of $147.8 billion and the potential to provide tens 

of thousands of new American jobs. In FY 2018, the Forest Service partnered with the International Society of 

Arboriculture to convene industry executives, academia leaders, and community forestry organizations on the topic 

of growing the future workforce in this high demand sector. As a result, private sector leaders committed to focus on 

six key challenges for actionable investments.

Supporting science-based decision-making. The UCF program, in partnership with American Forests and the 

National Association of Regional Councils, launched the Vibrant Cities Lab web platform to help policymakers, 

municipal executives, and urban forestry practitioners make science-based decisions about the trees that make their 

community healthier and more livable. This platform provides curated summaries of the best available science in 

urban forestry and a toolkit and self-assessment that guides users as they work to improve urban forest plans and 

practices. In 2019, Lab advancements will include a resilience section adapting Forest Service publications on storm 

readiness and response. This user-friendly tool helps city managers, policymakers, and advocates build thriving 

urban forest programs from the ground up. Particularly when budgets are limited, this tool can be used to prioritize 

the most important urban forestry investments a community can make to meet its own objectives. In 2019, 

communities will have a funding finder tool on the website to help secure funding for urban forestry projects. Nearly 

10,000 users have visited the platform since its 2016 launch, and more than 83 percent of users in 2018 were new 

users.

Selected Examples of Recent Progress

Workforce training for future tree care and natural resources careers: Tree care industry and green professions--

arboriculture, landscape design and maintenance, horticulture, etc. – are growth industries with an annual economic 

impact of $147.8 billion and the potential to provide tens of thousands of new American jobs. Prioritized in the TenYear Urban Forestry Action Plan and operationalized through the 2018 launch of roundtable discussions with tree 

care executives and forestry-related academia, UCF is providing communities with underserved and underemployed 

consistent, certification-driven, job-readiness skills to fill sustainable jobs across America. In Kansas, UCF invests 

in the 40-year partnership between Kansas Arborist Association and Kansas Forest Service to deliver a week-long 

Arborist Training Academy that has trained more than 1,800 participants and resulted in more than 280 certified 

arborists. The average salary for an arborist in Kansas is $36,000/year. Across the State of Washington, young adults 

are being trained in preparation for natural resources careers through hands-on urban forest restoration projects. 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Washington Department of Natural Resources commits UCF assistance to a successful jobs training model that 

includes a collaboration between student corps, community, and county organizations. Most recent, the UCF 

investment was leveraged to 72 projects, across 42 communities, training more than 100 young adults in urban 

forestry technical skills, and GIS mapping.

Shared Stewardship: In FY 2018, UCF partnered with the National Fish and Wildlife Foundation, other Federal 

agencies, and private funders in support of community-based volunteer action to restore community forests and 

protect water resources. There are 59 projects that will improve water quality, enhance wildlife habitat, and create 

recreation opportunities in priority watersheds across the country while directly engaging people of all ages to work 

on restoration and monitoring projects. FY 2018 grantees committed $5.2 million in local project support, 

generating a total conservation impact of more than $7.4 million. The 2018 program selected 59 grant winners from 

a highly competitive pool of more than 250 applications. The projects earning grant awards involve a high degree of 

local partnership between government agencies, community groups, businesses, schools, and nonprofit 

organizations.

Supporting community recovery from natural disaster: Urban Forest Strike Teams help communities rebuild 

after disasters— mobilizing to address storm-related damage using methodology developed by the Forest 

Service that uses the Federal Emergency Management Agency (FEMA) criteria for recording reimbursable tree 

damage and GPS to accurately map the location of each damaged tree. This assistance allows local contractors 

to efficiently mitigate hazard tree threats and aid communities in documenting tree damage for FEMA 

reimbursement. In 2018, Strike Teams completed four deployments to storms, including Hurricane Harvey in 

Houston, Texas. Strike Teams were deployed at the request of, and in collaboration with, state forestry 

officials and local communities. Strike Team assignments repeatedly appeared in requests for emergency 

response funding and technical assistance.

International Programs

Current Activities

The Forest Service International Programs promotes sustainable forest management globally and brings important 

technologies and innovations back to the United States. The program represents the interests of the entire U.S. 

forestry community and its stockholders 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.

Specifically Addressed Areas

International Programs participated in workshops offering technical advice to the USDA Animal and Plant Health 

Inspection Service (APHIS) staff on timber identification techniques for the prevention of illegal timber imports to 

the U.S.

International Programs supported efforts towards protecting Southern U.S. pine plantations from the invasive 

European woodwasp through partnerships with Mississippi State University and Forest Service researchers.

Selected Examples of Recent Progress

Stopping Illegal Wood Imports at U.S. Ports: Wood products entering the U.S. can be subject to inspection to verify 

legality and consistency with import documents. Specialists from APHIS are often asked by U.S. Customs and 

Border Patrol to identify imported wood products. However, wood identification is often outside the scope of their 

expertise. To help improve APHIS’ capacity to accurately screen wood products that are harvested or traded 

illegally, the Office of International Programs has facilitated three wood identification trainings at U.S. ports in 

Miami, Los Angeles, and Seattle, for APHIS specialists from across the United States. Training sessions focused on 

characteristics of the Dalbergia (rosewood) genus. These woods are very important to the musical instrument 

industry in the U.S. and are now regulated under the Convention on International Trade of Endangered Species. 

International Programs and APHIS participants also discussed strategies for better screening of violations of the 

Lacey Act, which bans trade of illegally sourced wood regardless of species.

Protecting Southern Pine Plantations from Invasive Woodwasp: The European woodwasp, Sirex noctilio, is a global 

pest of pines. .Sirex noctillo was first discovered in the U.S. in 2004 in upstate New York, and since then has 

expanded its range west and south. Impacts to date in the northern U.S. have been manageable; however, when the 

pest spreads to the southeastern U.S., where the hotter and drier climate is more similar to areas where significant 

damage has occurred, and where pine plantations are much more abundant, its outbreak potential is unknown but 

likely to increase. With support from International Programs, researchers at Mississippi State University and the 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Forest Service are studying impacts of soil moisture, precipitation, and stand density on the population dynamics of 

Sirex in the native and invasive range. This information will be analyzed to understand the relationship that stand 

density and drought conditions are likely to have on Sirex once it enters the southeast, and then develop management 

prescriptions for pine plantations that decrease the likelihood of Sirex outbreaks. Taken together, the findings from 

this study will help pine plantation managers in the southeastern U.S. anticipate and manage stand characteristics to

minimize the establishment and severity of Sirex noctilio.

National Fire Capacity (Previously State Fire Assistance)

Current Activities

More than 46 million homes in the United States (representing 40 percent of the Nation’s housing units) are 

located in fire-prone wildland-urban interface (WUI) areas. The first responders on almost 75 percent of 

wildfires are local fire departments or State agencies. Collaboration between the Forest Service, the 

Department of the Interior, and non-Federal government entities is important to an effective, all-lands 

approach to wildland fire management.

Through the National Fire Capacity program, the Forest Service supports and assists State Foresters and local 

communities in building capacity for the prevention, mitigation, control, and suppression of wildfires on nonFederal lands. The program helps State agencies create more fire-adapted communities by implementing prefire prevention and mitigation programs described in State Forest Action Plans. The program emphasizes prefire planning in the WUI and hazardous fuels mitigation near communities at risk of catastrophic wildfire. 

Training funded by the program provides for effective and safer initial response to wildfire. Additionally, the 

program improves capacity to assist other Federal, State, and local agencies in aiding communities affected by 

fire and non-fire emergencies, such as hurricanes and floods.

Selected Examples of Recent Progress

National Fire Capacity program funding assists State forestry agencies in training and equipping employees to serve 

as wildland firefighters. This not only helps with suppressing wildfires within their respective States, but also allows 

States to assist one another. For example, in 2018, Arizona sent 375 firefighters and 75 engines to California. 

Florida sent 75 firefighters to assist firefighting efforts in California and Oregon. Additionally, Wisconsin assisted 

California with 34 firefighters.

Funding is used to assist communities to become fire adapted using programs such as Firewise USA, which provides 

a collaborative framework for neighbors to reduce wildfire risks at the local level. The Firewise program continues 

to assist communities in wildfire-prone areas. National Fire Capacity funding supports the Firewise program at both 

the national level through a grant with the National Fire Protection Association and at the State level with funding 

for State forestry agencies to use in program administration. In 2018, 141 new communities in 23 States completed 

the application requirements to be recognized as Firewise communities and 1,528 communities in 42 States retained 

their recognition as Firewise communities by completing the renewal process. Also in 2018, communities were 

selected in seven States to participate in the new Firewise “Sites of Excellence” pilot program, which will require an 

increase in the percentage of homes meeting the program’s defined goals and objectives, along with additional 

mitigation assistance, publicity, and mentoring.

Rural Fire Capacity (Previously Volunteer Fire Assistance)

Current Activities

The first responders on almost 75 percent of wildfires are local fire departments or State agencies. The Rural 

Fire Capacity program provides technical and financial assistance to qualifying local volunteer fire 

departments that protect communities with populations of 10,000 or fewer. There are over 26,000 rural and 

predominantly volunteer fire departments nationwide. Without the cooperation of rural fire departments, the 

Forest Service and State forestry agencies would be unable to provide the level of fire response needed to 

contain fires near many communities.

The Rural Fire Capacity program enhances stability in rural areas by reducing fire-caused loss of human lives, 

natural resources, crops, homes, facilities, and rural businesses. Recipients match grants dollar-for-dollar to 

maximize the value of the Federal investment. Rural fire departments also play a key role in educating 

constituents about fire adaptation and the need for mitigation and help meet expanded fire protection needs 

within the wildland-urban interface. All of these initiatives combine to create more fire-adapted communities.
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Selected Examples of Recent Progress

In FY 2018, the Arkansas Forestry Commission used $200,000 to purchase personal protective gear, hand tools, 

backpack water pumps, and leaf blowers that were distributed to eligible volunteer fire departments across the State. 

This distribution effort is part of the Arkansas Rural Fire Program, a service provided by the Arkansas Forestry 

Commission to better equip firefighters. This program has aided 230 volunteer fire departments since 2014.

Nebraska Forest Service used $330,000 of its FY 2018 Rural Fire Capacity funding to provide grants to 109 

volunteer fire departments. These grants ranged in amounts from $170 to $4,500, with the average amount being 

$3,070. These grants are used by these volunteer fire departments to purchase personal protection and 

communication equipment to improve response to wildland fires. Grant funds will also be used to assist with fire 

prevention work.

State and Private Forestry Primary Authorities

Title of the Act or Program Summary of Authority

Expiration 

date (if 

applicable)

Programs 

Affected

Public 

Law 

Citation

USC 

Reference

Carlson-Foley Act of 1968 This Act authorizes use of noxious plant 

control funds to reimburse States for 

such activity on Federal land.

NFS, SPF P.L. 90–

583

43 U.S.C. 

2701-

2703

Community Wood Energy 

Program

The Agriculture Improvement Act of 

2018 authorizes $25,000,000 in 

annual appropriations for a 

Community Wood Energy Program 

through FY 2023. Grants of up to 

$1,500,000 to State and local 

governments or biomass consumer 

cooperatives to develop plans for, or 

to acquire or upgrade community 

wood energy systems.

9/30/2023 SPF P.L. 113-

79

7 U.S.C. 8113

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 

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 Working Forest Lands 

(previously Forest Stewardship)

Program, the Forest Legacy Program, 

and the Urban and Community 

Forestry Program.

Codifies the Landscape Scale Restoration 

Program and authorizes

appropriations through FY 2023.

9/30/2023 SPF P.L. 95-

313

16 U.S.C. 

2101-

2114

Farm Security and Rural 

Investment Act of 2002

Authorizes the Wood Innovation Grant 

Program and expands authority for 

wood innovation grants.

Authorizes appropriations for the 

community wood energy program.

SPF P.L. 107-

171

7 U.S.C. 8113
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Title of the Act or Program Summary of Authority

Expiration 

date (if 

applicable)

Programs 

Affected

Public 

Law 

Citation

USC 

Reference

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. 

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

Hawaii Tropical Forestry 

Recovery Act of 1992

Authorizes the Secretary of Agriculture 

to treat invasive plants on Federal 

and non-Federal ownerships in 

Hawaii and in tropical forests on 

Federal lands in other States.

International 

Forestry

P.L. 102-

574

16 U.S.C. 

4501-

4505

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-

4505

Rural Revitalization 

Technologies

Authorizes $5,000,000 in annual 

appropriations for forestry rural 

revitalization technologies to: (A) 

accelerate adoption of technologies 

using biomass and small-diameter 

materials; (B) create communitybased enterprises through marketing 

activities and demonstration projects; 

and (C) establish small-scale 

business enterprises to make use of 

biomass and small-diameter 

materials.

09/30/2023 SPF P.L. 101-

624, 

P.L. 

110-

246;

P.L. 

113-79 

7 U.S.C. 6601

Cooperative Funds and 

Deposits Act of 1975

Authority for the Secretary of 

Agriculture to enter into Cooperative 

Agreements which benefit certain 

Forest Service programs and to 

advance or reimburse funds to 

cooperators for work performed, and 

for other purposes.

ALL P.L. 94-

148

16 U.S.C. 

565al–a3, 

as 

amended

Interior and Related Agencies 

Appropriations Act of 

1992 – Using Cooperative 

Agreements

“Notwithstanding the provisions of the 

Federal Grant and Cooperative 

Agreements Act of 1977 (31 U.S.C. 

6301-6308), the Forest Service is 

authorized hereafter to negotiate and 

enter into cooperative agreements 

with public and private agencies, 

organizations, institutions, and 

individuals to print educational 

materials and to continue the 

Challenge Cost-Share Program.” 

ALL P.L 102-

154

31USC 6305
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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NATIONAL FOREST SYSTEM

LEAD-OFF TABULAR STATEMENT

Lead-Off Tabular Statement

Item Amount

2019 Annualized Continuing Resolution....................................................................................... $1,923,750,000 

Change in Appropriation ............................................................................................................... -11,000,000 

Budget Estimate, 2020................................................................................................................... 1,912,750,000 

APPROPRIATIONS LANGUAGE

The appropriations language follows (new language underscored; deleted matter enclosed in brackets):

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, [$1,923,750,000]$1,912,750,000, to remain available 

through September 30, [2022]2023: Provided, That of the funds provided under this heading, 

[$430,000,000]$450,000,000 shall be available 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 under this heading, up to [$15,000,000]$20,000,000 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.: Provided further, That 

funds made available to implement the Community Forest Restoration Act, Public Law 106–393, 

title VI, shall be available for use on non-Federal lands in accordance with authorities made 

available to the Forest Service under the "State and Private Forestry" appropriation.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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PROJECT STATEMENT

Project Statement (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec. SY

2020

Budget SY

Discretionary Appropriations:

Integrated Resource Restoration Pilot ........ $153,458 1,492 - - - - - - - -

Collaborative Forest Landscape 

Restoration.......................................... 39,000 260 $41,000 240 $30,526 240

-

$30,526 -240 - -

Land Management Planning, Assessment 

and Monitoring ................................... 141,983 768 141,366 182 141,366 - - +768 $141,366 768

Hazardous Fuels......................................... - - 358,367 2,098 358,367 2,045 +16,668 +130 375,035 2,175

Recreation, Heritage, & Wilderness........... 176,415 1,851 177,316 1,715 177,316 1,715 - - 177,316 1,715

Wildlife & Fisheries Habitat Management. 76,833 737 102,843 894 102,583 872 - - 102,583 872

Grazing Management................................. 38,848 444 40,750 413 40,750 413 - - 40,750 413

Forest Products .......................................... 202,352 2,284 276,183 2,881 267,603 2,809 +6,580 +48 274,183 2,857

Vegetation & Watershed Management....... 99,193 779 140,793 1,108 140,593 1,078 - - 140,593 1,078

Minerals & Geology Management ............. 52,583 458 56,406 431 57,146 431 - - 57,146 431

Land Use Authorization and Access a........ 52,826 503 55,051 454 55,051 454 -291 - 54,760 454

Law Enforcement Operations..................... 109,427 658 112,099 663 112,099 663 - +28 112,099 691

National Forest System – Other b............... 397,103 - 429,005 - 440,350 - -3,432 - 436,918 -

Subtotal .................................................. 1,540,021 10,234 1,931,179 11,079 1,923,750 10,720 -11,000 +734 1,912,750 11,454

Supplemental Appropriations:

Emerg. Supp. (PL 115-123) ....................... - - 20,652 - - - - - - -

Total Adjusted Approp ........................... 1,540,021 10,234 1,951,831 11,079 1,923,750 10,720 -11,000 +734 1,912,750 11,454

Rsc, Trns, Other (Net) ................................... -26,703 - -7,429 - - - - - - -

Total Appropriation.................................... 1,513,318 10,234 1,944,402 11,079 1,923,750 10,720 -11,000 +734 1,912,750 11,454

Transfers In:

Fire Transfer Repayment............................ - - 10,040 - - - - - - -

IRR From Capital Improvement & 

Maintenance........................................ 14,743 - - - - - - - - -

IRR From Wildfire Management ............... 24,000 - - - - - - - - -

Subtotal .................................................. 38,743 - 10,040 - - - - - - -

Transfers Out:

Fire Transfer .............................................. -10,040 - -740 - - - - - - -

Department of Interior................................ - - -1,871 - - - - - - -

Subtotal .................................................. -10,040 - -2,611 - - - - - - -

Rescission...................................................... -2,000 - - - - - - - - -

Recoveries, Other (Net)................................. 54,763 - 23,873 - 39,318 - - - 39,318 -

Bal. Available, SOY...................................... 22,896 - 10,834 - 63,864 - +39,068 - 102,932

Total Available .......................................... 1,617,680 10,234 1,986,538 11,079 2,026,932 10,720 +28,068 +734 2,055,000 11,454

Bal. Available, EOY...................................... -10,834 - -63,864 - -102,932 -23,068 - -126,000

Total Obligations ....................................... 1,606,846 10,234 1,922,674 11,079 1,924,000 10,720 +5,000 +734 1,929,000 11,454

a Previously Landownership Management.

b Other includes cost pool authority.

Note: The project statement includes the supplemental while the Four-Year Summary of Appropriations does not. Also, the project statement 

does not include amounts projected to be transferred from the special account “Communication Site Administration” account during 2020.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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FOUR-YEAR SUMMARY OF APPROPRIATIONS AND STAFF YEARS

Four-Year Summary of Appropriations and Staff Years (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec.

Chg 

Key SY

2020

Budget SY

Integrated Resource Restoration 

Pilot ........................................... - 1,492 - - - - - - - -

Collaborative Forest Landscape 

Restoration ................................ $40,000 260 $40,000 240 $40,000 240

-

$40,000 (1) -240 - -

Land Management Planning, 

Assessment and Monitoring ...... 182,928 768 179,263 182 179,263 - - +768 $179,263 768

Recreation, Heritage, & Wilderness . 264,595 1,851 257,848 1,715 257,848 1,715 - - 257,848 1,715

Wildlife & Fisheries Habitat 

Management.............................. 140,466 737 136,430 894 136,430 872 - - 136,430 872

Hazardous Fuels a............................. - - 430,000 2,098 430,000 2,045 +20,000 (2) +130 450,000 2,175

Grazing Management ....................... 56,856 444 56,856 413 56,856 413 - - 56,856 413

Forest Products................................. 367,805 2,284 366,000 2,881 366,000 2,809 +9,000 (3) +48 375,000 2,857

Vegetation & Watershed 

Management.............................. 184,716 779 180,000 1,108 180,000 1,078 - - 180,000 1,078

Minerals & Geology Management.... 75,569 458 74,200 431 74,200 431 - - 74,200 431

Land Use Authorization and Access. 73,730 503 74,000 454 74,000 454 - - 74,000 454

Law Enforcement Operations........... 126,653 658 129,153 663 129,153 663 - +28 129,153 691

National Forest System Total........ 1,513,318 10,234 1,923,750 11,079 1,923,750 10,720 -11,000 +734 1,912,750 11,454

a Hazardous Fuels is shifted to National Forest System in FY 2019; FY 2018 is shifted for comparability; FY 2017 is accounted under WFM.

JUSTIFICATIONS

Collaborative Forest Landscape Restoration

The Collaborative Forest Landscape Restoration (CFLR) program promotes collaborative, science-based ecosystem 

restoration of priority forest landscapes.

The funding change is requested for the following items:

(1) A decrease of $40,000,000 and 240 staff years ($40,000,000 and 240 staff years available in 2019).

Elimination of this program will reduce duplication among Federal programs, as other Forest Service programs 

also do restoration work on National Forest System lands. The agency will leverage the lessons learned in 

the CFLR program and apply it to existing programs that do similar work.

Land Management Planning, Assessment and Monitoring

The Land Management Planning, Assessment and Monitoring program ensures the productive and sustainable use of 

National Forest System lands through sound science and long-term land use planning as required by the National 

Forest Management Act.

Continuation of this program is critical because:

 Effective long-term planning and ongoing monitoring are essential to improving forest conditions; increasing

the availability of timber and other resources; and ensuring clean air and water, access to grazing, outdoor 

recreation, and more.

 Through the land management planning process, rural communities provide direct input on decisions affecting 

the lands on which they rely.

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. Pursuant to the National Forest 

Management Act, the Land Management Planning component establishes the management framework for the 193 

million acres of our Nation’s forests and grasslands. The inventory and monitoring component provides the 

information needed to revise and amend land management plans. The Forest Service has an interdisciplinary team of 

natural resource management professionals and experts that work together to efficiently and effectively execute land 

management plans.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Funds will be used to support 768 staff years to complete land management plans, revisions to plans, plan 

amendments, and assessments.

The funding and staff years are maintained ($179,263,000 and 768 staff years available in 2019). In FY 2020, of 

the requested funding, $141,366,000 is the adjusted appropriation when accounting for $37,897,000 in cost pool

allocations.

Funding will be used for land management plans, revisions to plans, plan amendments, and associated 

assessment and monitoring work. The Forest Service is working to become more efficient by producing 

larger, more comprehensive plans at lower costs under the 2012 Planning Rule. The agency is

streamlining processes to reduce the time and staff effort needed to complete environmental analysis 

through the Environmental Analysis and Decision Making (EADM) effort. The Forest Service is 

reviewing and updating National Environmental Policy Act (NEPA) regulations and building on 

authorities in the 2014 and 2018 Farm Bills and the Consolidated Appropriations Act, 2018 (P.L. 115–

141) to consider new categorical exclusions in such areas as infrastructure repair (in alignment with 

Executive Order 13807) and special use permits. The agency has been working with USDA to reengineer 

the way it conducts environmental analysis and decision making. Over the next three years, this will lead 

to increased efficiency and cost savings of $36 million, and a 30 percent reduction in processing time on 

EADM processes. This will result in both increased quality and quantity of accomplishments.

Recreation, Heritage and Wilderness

The National Forests and Grasslands receive nearly 150 million visits annually for hunting, fishing, camping, hiking, 

and other activities. To sustain and grow this level of use, the Forest Service is simplifying its permitting process for 

outfitters and guides, maintaining and growing strong partnerships, and working to address the recreational needs of 

today’s public who want year-round activities on National Forest System (NFS) lands.

Continuation of this program is critical because:

 Recreational activity is the single greatest use of NFS lands and is the agency’s strongest single contributor to 

rural prosperity.

 Recreational activities support jobs in rural communities and contribute to the national economy. These 

economic impacts are driven by the nearly 150 million people that visit Forest Service lands annually.

 The Forest Service manages permits for recreational uses across its 193 million acres of land for ski areas, 

marinas, lodges, and other facilities.

The USDA Forest Service’s recreation program contributes over $10 billion to the Nation’s Gross Domestic Product 

and supports approximately 143,000 full-time and part-time jobs annually in rural areas where other employment 

opportunities may not be available1. The benefits to rural communities from visitors to NFS lands continue long 

after visitors leave the forest. Visitors spend money in rural communities on everything from supplies, lodging, and 

restaurants to ski lessons and river guides.

The Forest Service manages about 30,000 permits for recreational uses across the United States, including outfitters 

and guides, ski resorts, marinas, and lodges. The agency is leading an effort to modernize and streamline the 

permitting process to reduce regulatory barriers, enhance customer service, and better support rural economies. For 

customers, this will mean more consistent access to NFS lands and an easier process to obtain a recreation permit.

Funds will be used to support 1,715 staff years, which will support access to NFS lands by simplifying the agency 

permit process.

The funding change is requested for the following items:

The funding and staff years are maintained ($257,848,000 and 1,715 staff years available in 2019). In FY 2020, 

of the requested funding, $177,316,000 is the adjusted appropriation when accounting for $80,532,000 in cost 

pool allocations.

Funding will be used to continue to focus on providing better customer service to the public, including 

modernizing permitting processes to allow the public to more easily access Federal lands. This 

 

1 Forest Service National Visitor Use Monitoring System, 2016 data
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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modernization will include a user-friendly ePermit system to help the public and small businesses more 

easily obtain permits and improve public access to national forests.

Wildlife and Fisheries Habitat Management

The Wildlife and Fisheries Habitat Management program works to maintain robust wildlife and fish populations and 

creates conditions for clean, abundant water, supporting enhanced opportunities for hunting and fishing. The 

program also emphasizes reforestation and revegetation efforts to improve forest conditions and help forests recover 

after wildfires.

Continuation of this program is critical because:

 Restoring ecosystems ensures that vital amenities such as abundant clean water and recreational opportunities 

are available to society.

 Maintaining robust fish and wildlife populations are a key economic driver for rural economies nationwide.

Every year forests, grasslands, and watersheds are impacted by catastrophic wildfires and outbreaks of insects and 

disease. At the same time, demand is growing for the multitude of services provided by national forests and 

grasslands. Accelerating restoration treatments is critical for returning these lands to a healthy condition that can 

support growing rural economies.

The program provides opportunities for millions of Americans that are passionate about fish and wildlife related 

recreation. In 2016, more than 103 million Americans participated in some form of fishing, hunting, or other wildlife 

associated recreation such as birdwatching or outdoor photography. In doing so, these stakeholders spent an 

estimated $157 billion on equipment, travel, licenses, and fees2. These expenditures supported 189,000 jobs.

Program funds will be used to support 872 staff years to manage watershed restoration and critical aquatic and 

terrestrial habitats that sustain fish and wildlife populations.

The funding change is requested for the following items:

The funding and staff years are maintained ($136,430,000 and 872 staff years available in 2019). In FY 2020, of 

the requested funding, $102,583,000 is the adjusted appropriation when accounting for $33,847,000 in cost pool

allocations.

Funding will be used for managing wildlife and fish habitat. The agency will continue to focus on completing 

the highest priority habitat improvements, maintaining important partnerships, and sustaining support for 

other key program areas. The agency is working to maintain and enhance wildlife and fish habitat while 

increasing the efficiency of environmental analysis to help accelerate the accomplishment of effective 

management activities on the ground.

Hazardous Fuels Reduction

Reducing hazardous fuels lowers the risk of severe wildfire, improves forest health, and ensures the productive and 

sustainable use of National Forest System (NFS) lands. The program contributes to improving conditions of forests 

and maintaining resilient landscapes, creating safer fire adapted communities, and enhancing response to wildfires.

Continuation of this program is critical because:

 Managing hazardous fuel loads is critical to protect the American public, provide for firefighter safety, and 

conserve the Nation’s natural resources.

 The Forest Service is uniquely equipped to deliver a restoration program for NFS lands and catastrophic 

wildfire risk reduction on a landscape scale, because the agency maintains an interdisciplinary team of natural 

resource management professionals and experts that work together to efficiently and effectively execute forest 

management plans and coordinate with non-Forest Service partners.

Across the country, forests, grasslands, and watersheds are impacted by a number of stressors, including 

catastrophic wildfire and outbreaks of insect and disease. At the same time, demand is growing for the 

multitude of services provided by national forests and grasslands. Accelerating active management is critical 

 

2

2016 National Survey of Fishing, Hunting, and Wildlife-Associated Recreation. U.S. Fish and Wildlife Service and U.S. Census 

Bureau
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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to improving forest conditions. Hazardous Fuels is a key part of the agency’s active management programs 

that also include Forest Products, Vegetation and Watershed, Wildlife and Fisheries Habitat, and Roads. 

Together, these programs improve forest conditions and create healthy, resilient landscapes and safer 

communities. Hazardous Fuels coordinates with activities that address wildland-urban interface fire 

mitigation, and community assistance to reduce the risk of catastrophic wildfire across land ownership 

boundaries.

Healthy, resilient landscapes are adapted to withstand natural disturbances and large-scale threats to sustainability. 

The cost of reducing high fuel loads on NFS lands varies significantly depending on the location of the land, the 

type of terrain, the equipment required, and other variables. However, research3 has shown that fuel treatments result 

in benefits with values two to three times the costs. This includes structures and infrastructure saved, and avoided 

suppression costs and post-fire rehabilitation costs.

Funds will be used to support 2,175 staff years and strategic investments in prescribed fire, mechanical fuels 

reduction, and thinning activities to reduce severe wildfire effects in high-risk areas.

The funding change is requested for the following items:

(2) An increase of $20,000,000 and 130 staff years ($430,000,000 and 2,045 staff years available in 2019). In FY 

2020, of the requested funding, $375,035,000 is the adjusted appropriation when accounting for $74,965,000 in 

cost pool allocations.

Funding will be used to mitigate wildfire risk on 3.4 million acres of hazardous fuels in high priority and high 

risk areas around the Nation. The Forest Service will focus investments on changing conditions on the 

landscape to mitigate wildfire risk to lives and property while improving forest conditions. The 

investments in FY 2020 will be informed by a scientific, outcome-based national investment model 

targeted at a larger, more meaningful geographic scale. Priorities will also be informed by the active 

management investments made by neighbors and partners. Cost per acre varies significantly based on 

location, terrain, and proximity to communities and structures. The agency will integrate hazardous fuels 

program work with forest products activities by planning, designing, and delivering on projects that meet 

multiple objectives on the ground.

Grazing Management

The Grazing Management program supports rural communities by providing almost 6,000 cattle producers with a 

forage and water resources for their open range livestock.

Continuation of this program is critical because:

 Proper management of grazing was one of the core reasons for the establishment of forest reserves that 

eventually became the National Forest System.

Proper management of grazing was one of the core reasons for the establishment of forest reserves that eventually 

became the National Forest System. Currently, the Grazing Management program maintains and restores rangelands 

on more than 102 million of 193 million acres of NFS lands spread across 29 States, contributing over 14,000 direct 

or indirect jobs and $706 million to the Nation’s economy each year. The Forest Service works closely with grazing 

associations and individual ranchers for the active management of rangelands.

Completing NEPA analysis, and the resulting signed management decisions, enables the agency to manage 

allotments to maintain, restore, and rehabilitate the land as needed to meet forest plan standards. Adjusting priorities 

in response to dynamic change on the landscape such as fires, floods, and other unplanned events can have a direct 

impact on the number of grazing management decisions completed. Ensuring grazing allotments meet forest plan 

standards is important to sustain healthy, resilient forest and rangelands that provide a wide range of resource 

benefits.

 

3 Buckley, M., N. Beck, P. Bowden, M. E. Miller, B. Hill, C. Luce, W. J. Elliot, N. Enstice, K. Podolak, E. Winford, S. L. Smith, 

M. Bokach, M. Reichert, D. Edelson, and J. Gaither. 2014. “Mokelumne watershed avoided cost analysis: Why Sierra fuel 

treatments make economic sense.” A report prepared for the Sierra Nevada Conservancy, The Nature Conservancy, and U.S. 

Department of Agriculture, Forest Service. Sierra Nevada Conservancy. Auburn, California. 

Online: http://www.sierranevadaconservancy.ca.gov/mokelumne.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Funds will be used to support 413 staff years to manage existing permits focusing on active stewardship to ensure 

grazing will be permitted at the sustainable levels.

The funding change is requested for the following items:

The funding and staff years are maintained ($56,856,000 and 413 staff years available in 2019). In FY 2020, of 

the requested funding, $40,750,000 is the adjusted appropriation when accounting for $16,106,000 in cost pool

allocations.

Funding will be used to administer grazing permits and complete NEPA requirements for management 

decisions. The agency will focus on active stewardship to ensure grazing is maintained at appropriate 

levels, and will use funds as effectively as possible on permit administration and providing excellent 

customer service to permittees. The agency is also streamlining processes to reduce the time and staff 

effort needed to complete environmental analysis through the Environmental Analysis and Decision 

Making (EADM) effort. The Forest Service is reviewing and updating NEPA regulations and building on 

authorities in the 2014 Farm Bill and the Consolidated Appropriations Act, 2018 (P.L. 115–141) to 

consider new categorical exclusions. Overall, the agency has been working with USDA to reengineer the 

way it conducts environmental analysis and decision making. This effort will lead to increased efficiency 

and agency-wide cost savings of $36 million, and a 30 percent reduction in processing time on EADM 

processes over the next three years. This will result in both increased quality and quantity of 

accomplishments.

Forest Products

The Forest Products program promotes healthy forests, improves forest conditions, and contributes to rural 

prosperity through the sale and disposal of National Forest System timber.

Continuation of this program is critical because:

 Timber sales are an important tool for improving forest conditions on National Forest System lands while 

generating revenue to offset the costs of the program.

 The program is critical to the economic health of rural timber-dependent communities, generating more than 

43,000 jobs and about $3.2 billion of gross domestic product annually.

Across the nation, forests, grasslands, and watersheds are impacted by a confluence of stressors, including 

catastrophic wildfire and outbreaks of insect and disease. At the same time, accelerating restoration treatments is

critical to supporting healthy and resilient forests communities. The Forest Service is uniquely equipped to deliver a 

restoration program for National Forest System lands because the agency has interdisciplinary teams of restoration 

specialists.

Efforts are underway to improve program efficiency by updating policies, practices, tools, and technology needed to 

fully implement authorities for offering forest products for sale. Proposed funding for this program will result in the 

agency achieving a timber output of 3.7 billion board feet in fiscal year 2020.

Funds will be used to support 2,857 staff years to complete analyses, plan, prepare, implement, and administer 

timber sales.

The funding change is requested for the following items:

(3) An increase of $9,000,000 and 48 staff years ($366,000,000 and 2,809 staff years available in 2019). In FY 

2020, of the requested funding, $274,183,000 is the adjusted appropriation when accounting for $100,817,000

in cost pool allocations.

Funding will be used to promote increased timber sales. The agency will advance its forest products 

modernization efforts to improve efficiency in timber sales. The Forest Products Modernization initiative 

is designed to align the agency’s culture, policies, and procedures with current and future needs for forest 

products from healthy, resilient forest ecosystems, so that the agency can become more agile, flexible, and 

adaptable in its work. This modernization will allow the agency to better meet current and future market 

demand for forest products in ways that simultaneously improve forest conditions. For example, the 

agency is revising policies and procedures to make timber sale contracts more flexible and make it easier 

to remove lower value or noncommercial biomass, thereby reducing wildfire fuels and improving forest 

conditions. The agency is also encouraging the use of cross-laminated timber technology to construct tall 

buildings from mass timber derived from small trees, which can include materials removed to reduce 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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wildfire fuels and improve forest health. The agency will also prioritize the use of authorities provided in 

the Consolidated Appropriations Act, 2018 (P.L. 115–141), and take the necessary steps to increase 

capacity to reach the output goal of 3.7 billion board feet of timber in FY 2020.

Vegetation and Watershed Management

The Vegetation and Watershed Management program ensures productive and sustainable use of National Forest 

System (NFS) lands by improving the growth and health of timber stands, reducing the risk of severe flooding and 

erosion in forests affected by wildfires, eradicating invasive species on forests and rangelands, and maintaining a 

stream of benefits from healthy rangelands and watersheds.

Continuation of this program is critical because:

 National forests provide an abundant, clean water supply for approximately one-fifth of American communities.

Program benefits include improved forest health, reduction in hazardous fuels, improved timber quality, and healthy 

fish and wildlife habitat.

Across the nation, forests, grasslands, and watersheds are impacted by a confluence of stressors, including 

catastrophic wildfire and outbreaks of insect and disease. At the same time accelerating restoration treatments is

critical to supporting healthy and resilient forests communities. The Forest Service is uniquely equipped to deliver a 

restoration program for NFS lands because the agency has interdisciplinary teams of expert biologists, ecologists, 

and other specialists dedicated to improving vegetative and watershed health.

Through planting, forest thinning, and invasive species management, the agency is improving forest conditions, 

improving water quality, and reducing the costs to communities for water treatment.

Funds will be used to support 1,078 staff years to restore lands through post-wildfire reforestation, planting, forest 

thinning, and invasive species management.

The funding change is requested for the following items:

The funding and staff years are maintained ($180,000,000 and 1,078 staff years available in 2019). In FY 2020, 

of the requested funding, $140,593,000 is the adjusted appropriation when accounting for $39,407,000 in cost 

pool allocations.

Funding will be used for reforestation and vegetation management to restore, maintain, and protect water and 

soil resources. The agency will emphasize post-wildfire restoration work to stabilize soils and restore 

appropriate forest cover to impacted lands. The agency will also continue to treat existing timber stands to 

increase resilience to wildfires and insects, and improve the quality of timber for future harvests. Funds 

will be used to maintain 52 percent of watersheds in functioning condition and will contribute to 

sustaining and restoring watershed function and resilience on more than 2,000,000 acres.

Minerals and Geology Management

The Minerals and Geology Management program ensures the productive and sustainable use of National Forest 

System (NFS) lands for energy and mineral development.

Continuation of this program is critical because:

 The program supports energy independence and provides critically needed, high wage jobs to rural economies.

 NFS lands produce enough energy annually to power nearly eight million homes for a year, and mineral and 

energy production beneath NFS lands contribute almost $8 billion to the Nation’s economy.

The Minerals and Geology Management program works with State and local partners to manage all aspects of 

mineral operations on NFS lands. The program contributes almost $8 billion annually to our Nation’s economy. It 

also provides 56,000 jobs, often in rural communities where other high wage jobs are scarce. Every appropriated 

dollar invested in leasable minerals, such as oil, gas, and coal, returns about seven dollars to the Treasury. The 

Minerals program supports Executive Order 13783, Promoting Energy Independence and Economic Growth; 

Executive Order 13817, A Federal Strategy to Ensure Secure and Reliable Supplies of Critical Minerals; and 

Executive Order 13807, Establishing Discipline and Accountability in the Environmental Review and Permitting 

Process for Infrastructure Projects.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Funds will be used to support 431 staff years to manage and efficiently process mineral applications and complete 

operations plans.

The funding change is requested for the following items:

The funding and staff years are maintained ($74,200,000 and 431 staff years available in 2019). In FY 2020, of 

the requested funding, $57,146,000 is the adjusted appropriation when accounting for $17,054,000 in cost pool

allocations.

Funding will be used for efficiently processing mineral applications and priority projects, particularly those 

associated with proposed mineral withdrawals, large scale mine permitting, and leasing analyses.

Land Use Authorization and Access

The Land Use Authorization and Access program ensures the productive and sustainable use of National Forest 

System lands for rural and national infrastructure. The program lays the foundation for all land and natural resource 

management activities on NFS lands.

Continuation of this program is critical because:

 NFS lands host cell towers, oil and gas pipelines, fiber optic (broadband) lines, emergency communications 

facilities, power grid lines, road rights-of-way, and other infrastructure that provides critical services to rural 

communities and the Nation.

 By authorizing and managing infrastructure on NFS lands, the program enables essential public services such as 

emergency communications, broadband, radio, cellular service, transportation, and clean water.

The Forest Service is currently leading an effort to modernize and streamline the entire special use program to 

reduce regulatory barriers, enhance customer service, and boost rural economies, including special uses for industry. 

This modernization will include a user-friendly ePermit system so that the public and small businesses can more 

easily obtain permits and improve public access to national forests.

Funds will be used to support 454 staff years to administer and process special use permits.

The funding change is requested for the following items:

The funding and staff years are maintained ($74,000,000 and 454 staff years available in 2019). In FY 2020, of 

the requested funding, $54,760,000 is the adjusted appropriation when accounting for $19,239,000 in cost 

pools.

Funding will be used for issuing special use permits for uses on NFS lands. The agency will prioritize efforts 

to modernize and streamline special use processes including implementing an ePermit system that will 

improve public access to national forests. The agency will continue to make strategic investments in 

facilitating access to National Forest System lands for economic benefit. Also, $4,500,000 is projected to 

be transferred from the special account “Communication Site Administration.”

Law Enforcement and Investigations

The program is charged with providing a safe environment for the public and agency employees and protecting the 

Nation’s natural resources on approximately 193 million acres of National Forest System (NFS) lands in 44 States.

Continuation of this program is critical because:

 Protecting the public, employees, and natural resources is a critical service provided by Forest Service law 

enforcement, especially as visitor rates and other non-recreation activities on NFS lands are expected to 

continue to increase.

Law Enforcement and Investigation (LEI) officers enforce laws and regulations, investigate crimes, and minimize 

risks to public and employee health and safety. Staff frequently respond to catastrophic or manmade disasters at the 

local, regional, and national level, and commonly provide immediate emergency response in support of wildland 

fires incidents and other natural disasters on public lands and in nearby communities.

LEI officers provide a highly visible uniformed patrol presence and rapid emergency response to incidents affecting 

the public and employees on NFS lands. Funding supports regular and recurring patrols, response to crimes, and the 

conduct of complex criminal and civil investigations ranging from minor infractions to serious felonies.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Funds will be used to support 691 staff years, and the proposed funding will be used to continue law enforcement 

operations on national forests and grasslands. Additionally, these funds support marijuana eradication operations and 

marijuana grow site clean-up and reclamation on NFS lands. Many of these marijuana sites have extremely toxic 

chemicals and pesticides that significantly impact the environment, including the water sources that many 

communities rely on for clean, safe drinking water.

The funding is requested for the following items:

The funding level is maintained and an increase of 28 staff years, ($129,153,000 and 663 staff years in 2019). In 

FY 2020, of the requested funding, $112,099,000 is the adjusted appropriation when accounting for 

$17,054,000 in cost pool allocations.

Other

This line identifies projected cost pool amounts for the requested appropriation in the following amounts:

A) From Land Management Planning, Assessment and Monitoring: $37,897,000

B) From Recreation, Heritage, and Wilderness: $80,532,000

C) From Wildlife and Fisheries Habitat Management: $33,847,000

D) From Grazing Management: $16,106,000

E) From Forest Products: $100,817,000

F) From Vegetation and Watershed Management: $39,407,000

G) From Minerals and Geology Management: $17,054,000

H) From Land Use Authorization and Access: $19,239,000

I) From Hazardous Fuels: $74,965,000

J) From Law Enforcement Operations: $17,054,000

K) Total $436,918,000 cost pool allocations proposed in FY 2020.
2020 USDA EXPLANATORY NOTES – AGRICULTURAL ENGINEERING SERVICE

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CLASSIFICATION BY OBJECTS

Classification by Objects (dollars in thousands)

Item 

No. Item 2017 

Actual

2018 

Actual

2019 

Estimate

2020

Budget

Personnel Compensation:

11.0 Total personnel compensation............................................. $713,571 $858,913 $831,081 $887,985

12.0 Personnel benefits............................................................... 288,332 337,190 326,264 348,603

13.0 Benefits for former personnel.............................................. 5,343 11,064 10,705 11,438

Total, personnel comp. and benefits................................. 1,007,246 1,207,167 1,168,050 1,248,026

Other Objects:

21.0 Travel and transportation of persons................................... 28,875 34,457 36,404 32,794

22.0 Transportation of things...................................................... 14,436 17,227 18,200 16,395

23.1 Rent payments to GSA........................................................ 14,820 17,685 18,684 16,831

23.2 Rental payments to others................................................... 21,581 25,753 27,208 24,510

23.3 Communications, utilities, and misc. charges ..................... 29,780 35,537 37,545 33,822

24.0 Printing and reproduction.................................................... 2,603 3,106 3,282 2,956

25.1 Advisory and assistance services ........................................ 164 196 207 186

25.2 Other services...................................................................... 175,211 209,081 220,899 198,990

25.3 Purchases of goods and services ......................................... 153,671 183,377 193,742 174,526

25.4 Operation and maintenance of facilities.............................. 1,522 1,816 1,919 1,729

25.5 Research and development contracts................................... 1,062 1,267 1,339 1,206

25.6 Medical care........................................................................ 132 158 166 150

25.7 Operation and maintenance of equipment........................... 8,168 9,747 10,298 9,277

26.0 Supplies and materials......................................................... 41,599 49,640 52,446 47,245

31.0 Equipment........................................................................... 24,050 28,699 30,321 27,314

32.0 Land and structures............................................................. 696 831 877 790

41.0 Grants, subsidies, and contributions.................................... 80,321 95,848 101,265 91,222

42.0 Insurance claims and indemnities........................................ 909 1,085 1,146 1,032

Total, other objects........................................................... 599,600 715,507 755,950 680,974

99.9 Total, new obligations................................................... 1,606,846 1,922,674 1,924,000 1,929,000

DHS Building Security Payments (included in 25.3)............. 218 218 202 202 

Position Data:

Average Salary (dollars), ES Position ................................. 174,534 179,273 181,962 184,692

Average Salary (dollars), GS Position................................. 65,434 65,834 66,822 67,824

Average Grade, GS Position ............................................... 9.4 9.3 9.4 9.4
2020 USDA EXPLANATORY NOTES – AGRICULTURAL ENGINEERING SERVICE

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STATUS OF PROGRAMS

The National Forest System (NFS) appropriation funds the 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.

Collaborative Forest Landscape Restoration

Current Activities

By working more closely with communities, Collaborative Forest Landscape Restoration Program (CFLRP) 

projects are identifying innovative techniques for getting work done, increasing community support for 

restoration projects, leveraging capacity, and expanding the scale of restoration. Through its place-based 

investments in restoration, the Program also supports local rural communities through the generation of forest 

products such as timber and biomass for bioenergy production, as well as the creation and maintenance of jobs.

Specifically Addressed Areas

CFLRP projects advance high priority, integrated results, including projects that reduce wildfire risk and produce 

forest products that provide local jobs and support economic stability. In FY 2018, a total of over 520,000 acres 

were treated for hazardous fuels and over 432 million board feet of timber was sold.

The Program continues to advance community engagement and shared stewardship. Projects involve over 200 local 

partners who support shared priorities and coordinate work across the landscape. CFLRP attracts significant partner 

investments. The focused Federal investment through CFLRP has attracted significant partner investments, 

averaging $20 million in partner match on National Forest System lands and an additional $51 million in 

investments across the full CFLRP landscape boundary. This leveraged capacity and support extends beyond 

CFLRP efforts to influence the overall operating environment in communities4.

Selected Examples of Recent Progress

Reducing fire risk: With its focused investment on priority landscapes, partner capacity, and community support, 

CFLRP projects are expanding the pace and the scale of treatments implemented to reduce the risk of widespread, 

high-mortality fires. In FY 2018, CFLRP projects contributed 15 percent of the agency’s overall hazardous fuels 

reduction accomplishments. These treatments are producing results. For example, recent multi-party monitoring data 

on the Uncompahgre Plateau CFLRP in Western Colorado demonstrates that they have reduced the risk of crown (or 

canopy) fire. After thinning, winds would have to exceed 100 miles per hour for a fire to move from one tree crown 

to another. Treatments are designed to accomplish multiple objectives, including enhancing habitat for elk and mule 

deer, producing timber, and restoring ecological function. Partners on the Uncompahgre Plateau are central to these 

objectives, with contributions averaging $400,000 per year.

Supporting local economies: On average, the 23 CFLRP projects generate $214 million in local labor income 

per year and support 5,400 jobs through restoration work.5 A third-party economic analysis completed for the 

Missouri Pine Oak Woodlands Restoration CFLRP showed that the local community benefited from $2.20 of local 

economic activity for every dollar invested, with the net value estimated as $28 million. In Mississippi, the Longleaf 

Pine Ecosystem Restoration and Hazardous Reduction CFLRP helps generate $1.5 million in the local economy 

annually through contracts, grants, and agreements for restoration and related work. The increased scale of timber 

sales from CFLRP has benefited the economy and provided significant timber to local mills and industry.

Promoting shared stewardship for integrated results: By promoting shared leadership, shared capacity, and shared 

risk, CFLRP projects generate social consensus, durable decisions, and the ability to solve problems when 

challenges arise. The majority of CFLRP participants have reported reduced conflict and improved decision-making 

processes6. For example, the Kootenai Valley Restoration Initiative in Idaho involves diverse perspectives from 

 

4 Average based on 2012-2017 data, as 2017 is the most recent year for which data is currently available. Partner investments 

includes through agreement and in-kind contributions.

5 Average based on economic modelling for 2010-2017, as 2017 is the most recent year for which data is currently available. 

6 Schultz et al (2017). Strategies for Success Under Forest Service Restoration Initiatives. Ecosystem Workforce Program 

Working Paper Number 81.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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business and industry, the Kootenai Tribe of Idaho, conservation, landowners, State, and local agencies and officials. 

The collaboration has had strong payoffs in creating social license and reducing the risk of litigation, and the 

sustained investment has attracted significant partner investments including other federal agencies such as the U.S. 

Fish and Wildlife Service. The CFLRP project effectively leverages partner resources, including employing local 

youth crews for recreation work, competing for State grants for restoration, and providing opportunities for senior 

citizen volunteer crews. The collaborative approach has expanded beyond the CFLRP landscape and has become a 

normal part of how business is done.

Land Management Planning, Assessment and Monitoring

Current Activities

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. Land Management 

Planning, Assessment and Monitoring program activities are the foundation for the agency’s mission to keep forests 

and grasslands healthy and resilient. The land management plans (LMPs) guide management activities on the 154 

national forests and 20 grasslands in the National Forest System. Managing lands requires a continuous cycle of 

assessing, planning, implementing, and adjusting programs and projects based on new information. Inventory and 

monitoring provides information to complete LMP revisions and amendments using a collaborative and sciencebased framework. This ensures that up-to-date information and the best available science are used in forest plans.

Specifically Addressed Areas

Addressing public engagement requirements under the National Forest Management Act and the National 

Environmental Policy Act to build networks across the agency and with partners.

Addressing opportunities to develop, improve, and clarify policies, processes, and tools for conducting 

environmental analyses and decision making so that the agency can implement plans more efficiently and 

effectively.

Selected Examples of Recent Progress

Land management planning: In FY 2018, the agency released nine land management plans (draft and final) and one 

national monument plan. The agency is revising 26 LMPs under the 2012 Planning Rule, as well as four others 

under the 1982 Planning Procedures. All revisions using the 1982 Procedures are expected to be completed in FY 

2019, as well as three LMPs under the 2012 Planning Rule. Forest Service field units with up-to-date plans can 

focus on achieving agency goals through projects for restoration, fuel treatments, special uses, timber supply, 

infrastructure, and access to National Forest System lands. Project-level decision making is significantly more 

effective and efficient if it can be tiered to current and relevant desired conditions and objectives in land 

management plans.

Monitoring transition: Over 90 non-exempt units have completed the requirements for transitioning their monitoring 

programs over to the requirements of the new (2012) Planning Rule. The first biennial monitoring reports for units 

using a standard template to make reports more meaningful to the agency and the public were completed in FY 

2018. Other transitioned units, as well as units completing revisions under the new planning rule, are expected to 

complete monitoring reports in FY 2019 and later. The evaluation results in these reports will provide the basis for 

determining progress towards meeting desired conditions and objectives in LMPs, and the need for any adjustments 

to plan content or specific projects that are implementing plans.

Improving assessments and plan development: The agency has been compiling “lessons learned” to improve 

assessments, plan development, and the content and processes associated with land management plan monitoring. 

Forest assessments completed in FY 2018 were streamlined to focus on topics tied directly to the need for changing 

plan content. This includes establishing processes for ensuring that monitoring questions and indicators reflect 

progress towards, or achievement of, specific desired conditions, objectives, and other plan components.

Recreation, Heritage and Wilderness

Current Activities

The national forests and grasslands receive over 149 million visits annually for hunting, fishing, camping, hiking, 

and other activities. To sustain and grow this level of use, the Forest Service is investing its resources in simplifying 

our permitting process for outfitters and guides, maintaining and growing strong collaborations with partners and 

volunteer groups, and working to address the recreational desires of today’s public, who want year-round activities 

on National Forest System lands. This program provides public recreational access to over 193 million acres of 

scenic lands, with more than 158,000 miles of trails, 27,000 developed recreation sites, 220,000 miles of fishable 

streams, 122 ski areas, and over 450,000 heritage sites.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Specifically Addressed Areas

The Forest Service has been modernizing Recreation.gov. As part of the Recreation One-Stop E-Gov initiative, 

Recreation.gov offers a single point of access to comprehensive information about Federal recreation activities. Site 

services include reservation and trip planning for 100,000 individual sites and activities, and 3,500 recreation areas 

managed by seven Federal agencies.

The agency continues to transform the special use program to reduce regulatory barriers, enhance customer service, 

and promote rural economies. The Forest Service is making it easier to obtain permits online or though mobile apps.

Implementation of two initiatives: (1) Wilderness Stewardship Performance – a measure tracked by the agency to 

monitor wilderness-specific baseline performance goals; and (2) Wilderness Character Monitoring – an interagency 

strategy to measure how well the agency is meeting its primary responsibility to preserve wilderness character under 

the Wilderness Act.

2018 also marked the 50th Anniversary of the Wild and Scenic Rivers Act, and the Forest Service commemorated 

this milestone through various national and local partnerships to engage communities and support river stewardship 

efforts. Along with various events across the country, the Forest Service utilized this golden anniversary to invest in 

collaborative legacy projects that will support such program priorities as updating and completing comprehensive 

river management plans, water quality enhancement in wild and scenic river basins, and the development of a 

sustainable training program for river management.

Selected Examples of Recent Progress

Recreation.gov: On October 1, 2018, the Forest Service launched the updated Recreation.gov to the public. The new 

site provides an innovative digital interface that crosses technology and platforms to deliver high quality customer 

service and offers new and improved features for managers.

Wilderness Character Monitoring: FY 2018 was the pilot year for 29 Wilderness Areas across the National Forest 

System to establish baseline assessments. The agency also identified measures based on the five qualities of 

wilderness character identified in the Wilderness Act of 1964. Wilderness Character Monitoring uses existing 

performance data to help the agency understand how wilderness character is changing over time. Centralized 

implementation has provided a consistent implementation approach for all wilderness areas. Wilderness areas are on 

a five-year cycle to repeat the monitoring program and determine trends for each measure.

Wildlife & Fisheries Habitat Management

Current Activities

The Wildlife and Fisheries Habitat Management program works toward keeping wildlife and fish populations 

robust, and fosters conditions for clean, abundant water to help ensure the productive and sustainable use of National 

NFS lands. The program emphasizes reforestation and revegetation efforts in support of ecological restoration, and 

post-wildfire recovery. Restoring ecosystems ensures that vital amenities such as clean water and recreational 

opportunities are available to society. In the lower 48 States, NFS lands contain 80 percent of elk, bighorn sheep, 

and mountain goat habitat; the majority of habitat remaining for rare and wide-ranging carnivores such as grizzly 

bear7and Canada Lynx8; greater than 28 million acres of wild turkey habitat; and 50 percent of the Nation’s premier 

trout and salmon habitat.

Specifically Addressed Areas

Improving the condition of watersheds by restoring and enhancing streams and lake habitat, enhancing aquatic 

organism passage, making stream crossings less susceptible to failure after fires or floods, removing invasive 

species, and enhancing riparian conditions. The national forests and grasslands contain some of the most 

ecologically and economically significant habitat remaining in the Nation, including 220,000 miles of fishable 

streams, more than 10 million acres of lakes and reservoirs, and 5 million acres of wetlands.

 

7U.S. Fish and Wildlife Service. 1993. “Grizzly bear recovery plan.” Missoula, MT. 181 pp. Online: 

https://www.fws.gov/mountain-prairie/es/species/mammals/grizzly/Grizzly_bear_recovery_plan.pdf.

8

Interagency Lynx Biology Team. 2013. “Canada lynx conservation assessment and strategy. 3rd edition.” USDA Forest Service, 

USDI Fish and Wildlife Service, USDI Bureau of Land Management, and USDI National Park Service. Forest Service 

Publication RI-13-19, Missoula, MT. 129 pp. Online: 

https://www.fs.fed.us/biology/resources/pubs/wildlife/LCAS_revisedAugust2013.pdf.
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The agency continues to restore and enhance wildlife habitat, which contributes to 40 percent of the total acres 

treated each year to restore forest and grassland ecosystems.

Selected Examples of Recent Progress

Process Improvements: In FY 2018, the agency took actions to evaluate approaches to Endangered Species Act 

(ESA) consultation and improve related environmental analysis and decision making. These actions included: better 

training for employees in complex ESA concepts; developing and communicating national direction clarifying the 

relationship between ESA effects determinations and NEPA compliance; and partnering with the U.S. Fish and 

Wildlife Service to develop a tool to more efficiently complete biological assessments.

Infrastructure: The agency implemented the second year of a strategic approach, in partnership with Trout 

Unlimited, to accelerate improving Aquatic Organism Passage (AOP) at road-stream crossings. This partnership 

resulted in: design for 21 road-stream crossing and stream restoration projects on 12 National Forests; 214 roadstream crossings on National Forest System and private lands; and reconnecting approximately 400 miles of stream 

habitat.

Clean Water: In FY 2018 the agency targeted investments in the National Best Management Practices (BMP) 

Program to improve tools to meet agency requirements under the Clean Water Act and protect clean water. The 

program made advancements to increase the speed and accuracy of use and sharing of data with State water quality 

agencies, the Environmental Protection Agency, and other partners.

Hazardous Fuels Reduction

Current Activities

The Nation’s forests and grasslands are stressed by extended drought, severe wildfires, and large outbreaks of 

insects and disease. These stressors and disturbances impact forests, grasslands, and watersheds, and threaten rural 

communities, timber, and other forest products, utility corridors, municipal watersheds, and more, causing millions 

of dollars in damage each year.

Hazardous fuel treatments include any vegetation manipulation, removal, or modification of wildland fuels to reduce 

the likelihood of ignition, reduce potential fire intensity and rate of spread, lessen potential damage, or limit the 

spread of invasive species and diseases. These treatments promote the natural role of fire by reducing the likelihood 

of uncharacteristically intense wildland fire and increase the agency’s capabilities to protect life and property 

(including communities-at-risk and sensitive municipal watersheds), sensitive natural resources (including native 

plant communities and threatened and endangered species), and other socially important cultural resources.

In FY 2018, the Forest Service treated over 3.2 million acres of National Forest System lands and adjacent areas to 

mitigate wildfire risk. Over 1.65 million acres were treated with prescribed fire, a 48 percent increase over the 

previous year and one of the most cost-effective methods of treatment. Over 2 million of the treated acres were in 

high risk wildland-urban interface (WUI) areas. The remaining 40 percent of treated areas were identified as high 

priority for other important values at risk to wildfire, including protection of municipal watersheds; avoiding 

wildfire side effects like poor air quality, loss of habitats, and area closures; and other objectives such as harvesting 

forest products and ecosystem restoration occurring outside of WUI areas.

Specifically Addressed Areas

Treating areas with high potential for damaging wildfires within the WUI. Two analyses determine the funding 

allocation in these areas. The first analysis uses a scenario-planning tool to identify projects areas that would both 

reduce wildfire risk while providing opportunities to produce timber volume. The second analysis focuses on crossboundary opportunities to reduce wildfire risk by identifying areas where there is high and very high wildfire hazard 

potential that are adjacent to communities. Mitigating wildfire risk to these communities requires an all-lands 

approach to be effective. Working with community partners across boundaries allows the agency to leverage 

resources and work efficiently to reduce wildfire risk while creating resilient landscapes and encouraging fireadapted communities.

Treating fire-adapted ecosystems that require periodic fire to maintain forest health and resilient landscapes. The 

agency focuses on the many ecosystems on NFS lands that evolved with fire and need fire to maintain ecosystem 

health while preventing the unnatural accumulation of fuels that would cause damaging wildfires in the future. 

Modern fire suppression and reduction of aboriginal burning practices have significantly reduced levels of frequent 

low-intensity fires. The Hazardous Fuels program prioritizes treatments in these areas to reduce forest health 

problems and risk of catastrophic wildfire.
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Selected Example of Recent Progress

Southern Wyoming: The Mountain Home All Hands - All Lands project was an ongoing effort that started in 2012. 

The project was a partnership with Albany County, Wyoming to create cross-boundary defensible space through 

National Forest System hazardous fuels treatments and private landowner grants. The human-caused Badger Creek 

Fire started on the Medicine Bow-Routt National Forest on June 10, 2018, two miles northwest of the community of 

Mountain Home, Wyoming. Beetle kill had affected this area significantly in the early 2000’s. Proactive hazardous 

fuels treatments in the area as part of the Mountain Home All Hands – All Lands project have resulted in hundreds 

of acres of thinning and prescribed burning to reduce wildfire risk. While evacuating 400 homes, firefighters utilized 

the fuel breaks created in the project area as an anchor point to engage the wildfire safely. Despite red flag 

conditions driving flame lengths as high as 200 feet, the defensible space of the fuel breaks allowed ground 

resources to assess structures and direct effective retardant drops from air tankers. The fire reached the next fuels 

treatment area near the community of Wold Tract and, combined with the effects of the retardant that had been 

applied, fire behavior was quickly moderated and then contained. The interagency efforts of this All Hands-All 

Lands project resulted in the successful protection of this resilient community.

Central Arizona: The 2018 Tinder wildfire in Arizona burned into three different fuels treatment project areas that 

were effective in helping control the wildfire while protecting values at risk. The Blue Ridge Urban Interface Project 

provided crews with the opportunity to engage in suppression activities during the most extreme weather conditions 

while being safe. The project treatments allowed fire crews to establish a solid anchor and greatly increased the 

probability of success during suppression actions. If the wildfire would have been able to move further west and 

then align with the wind, it would have directly impacted a highly populated area. Similarly, the Victorine Project 

allowed crews to effectively establish control lines using previously treated prescribed burn units. In that instance, 

the fire dropped from the upper canopy to the ground, allowing fire fighters the chance to effectively suppress the 

fire in the previously treated units. The areas that were treated with prescribed fire and thinning experienced fire 

effects consistent with low intensity fire, while those without treatment experienced high intensity fire behavior 

outside the range of native ponderosa pine fire ecology. Lastly, the East Clear Creek Project was at the heel of the 

wildfire, providing an effective anchor point for suppression forces, because the 2017 prescribed burn area 

effectively stopped the Tinder wildfire from spreading in that direction.

Joint Chiefs’ Landscape Restoration Partnership: The goal of the Partnership is to reduce wildfire risk, improve 

water quality, and increase habitat for at-risk species. The Capital 360 Project, which spans three counties 

(Broadwater, Jefferson, and Lewis & Clark) around Helena, Montana is a great example of the Joint Chiefs’ 

collaboration. This project, approved in FY 2018, builds on the successful implementation of another Joint Chiefs’ 

project approved in FY 2014. The goal is to integrate and coordinate resource management across all administrative 

boundaries to mitigate wildfire risk in priority areas and improve water quality to the Helena and East Helena 

municipal water supply. These goals will be achieved through the strategic placement of fuels reduction treatments, 

building on previous, successful small-scale fuels reduction projects within the same project area organized by the 

Tri-County Fire Safe Working Group (TCFWG). The TCFWG is an organization that has been focused on fuels 

reduction and defensible space projects for over 30 years in Jefferson, Lewis & Clark, and Broadwater Counties. 

The Capital 360 Coordinating Group was built on the efforts and cross-boundary coordination that TCFWG has 

been organizing for over three decades. Their coordination has resulted in over 4,000 acres of defensible space 

treatment and 15 miles of roadside evacuation route preparation on private lands adjacent to State and private lands.

Grazing Management

Current Activities

The Grazing Management program ensures the productive and sustainable use of National Forest System (NFS)

lands for grazing and supports the U.S. ranching community’s use of NFS lands by maintaining a sustainable supply 

of forage for their livestock. This program properly manages rangeland ecosystems that provide secure food sources, 

sustain water resources, and provide wildlife habitat and ecosystem services.

Specifically Addressed Areas

The effort to maintain and sustain current levels of livestock grazing has been largely tied to agency site-specific 

allotment analysis and NEPA efforts on thousands of active grazing allotments for over 20 years. These efforts have 

been in compliance with existing and revised Forest and Grassland Management Plans as required by passage of the 

1995 Rescissions Act. While drought and fires can and do reduce the number of livestock in some years, the Forest 

Service has worked to maintain and sustain livestock numbers on NFS lands

Promoting economic stability for local communities that depend on range resources, the agency sustains livestock 

forage and habitat requirements of animals and plants using vegetation as a management tool to promote desirable 
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vegetation and reduce invasive plant populations. To find the best solutions and monitoring strategies of vegetation 

management, the agency works with livestock permittees and the relevant regulatory agencies (U.S. Fish and 

Wildlife Service and National Marine Fisheries Service).

Selected Examples of Recent Progress

Improving Customer service: The agency is sharpening its focus on relationships with livestock grazing permittees, 

recognizing them as partners who share in stewardship to maintain and improve America’s forests and grasslands. 

Forest and District line officers are being offered training to better understand the livestock industry and the role it 

plays in range management and conservation. Forest and District range staff are being trained on interactions with 

permittees, and new employees are encouraged to spend time with permittees on their ranches to understand how 

they operate. A strong working relationship between the line officers, range specialists, and permittees is important 

to the management of NFS lands.

Leveraging funds and partnerships: Forests across the country have made significant strides in leveraging funds and 

partnerships using the Environmental Quality Incentive Program to implement rangeland habitat and structural range 

improvements. These projects achieve multiple resource benefits while bolstering the agency’s ability to build and 

maintain structural improvements such as fences. Two ongoing cooperative projects have been added in the North 

Great Plains with teams working collaboratively with the National Fish and Wildlife Foundation. Innovative Good 

Neighbor Authority projects on grazing allotments have also been initiated with several State-level Departments of 

Agriculture.

Forest Products

Current Activities

The Forest Products program ensures the productive and sustainable use of NFS system lands by supporting healthy 

and resilient forests and communities. This program generates timber jobs in rural America through the sale of 

billions of board feet of timber annually.

Specifically Addressed Areas

The agency is moving rapidly to expand the use of the Good Neighbor Authority, which allows States to restore 

watersheds and manage forests on National Forest System lands via agreements or contracts. Master agreements 

establish a framework for the State-Forest Service collaborative relationship, with future projects identified in 

supplemental project agreements. Forty-four master agreements have been executed with agencies in 33 States. At

the end of FY 2017 there were 125 agreements in 33 States—76 of which were project agreements. By the end of 

FY 2018, there were 188 agreements in 37 States—144 of which were project agreements. Through these project 

agreements, 89 million board feet of timber was sold in FY 2018.

The agency is identifying ways to improve and modernize its systems that produce forest products. This includes 

policies, authorities, practices, and tools that drive how the agency plans and implements projects that deliver forest 

products. In FY 2018, solution teams comprised of staff from all levels of the agency were assembled to focus on six 

priority areas. The teams generated more than 300 solution ideas and identified the top ten, including employee 

development and retention strategies, increasing use of technology, and revising procedures for timber valuation and 

contracts.

Selected Examples of Recent Progress

Forest products sales and economic contribution: In FY 2018, the Forest Service completed more than 268,000 

forest product sales, including over 1,100 timber sales or stewardship contracts. In total, these sales of timber, 

firewood, Christmas trees, mushrooms, and other products had a value of just over $227 million. In addition to 

meeting subsistence and personal use needs, the Forest Products program is critical to local economies, generating 

over 43,000 jobs and about $3.2 billion of gross domestic product in the agency’s most recent economic analysis.

Timber value: In FY 2018, the agency sold about 3.2 billion board feet, a 10 percent increase over FY 2017, and an 

amount last reached in 1997. This includes 2.6 billion board feet of timber sold with Forest Products funding, and 

almost 600 million board feet sold using salvage sale funds, other permanent and trust funds, and Collaborative 

Forest Landscape Restoration funding. This achievement was, in part, made possible by use of tools authorized or 

amended in the 2014 Farm Bill and the Consolidated Appropriations Act, 2018 (P.L. 115–141), including the Good 

Neighbor Authority, insect and disease designations, stewardship contracting, and the Agriculture Conservation 

Experienced Services Program.

Program Evaluations

From 2017 to 2018, the Government Accountability Office (GAO) examined how the Forest Service and the Bureau 

of Land Management (BLM) are implementing the law that prohibits the export of unprocessed logs from 
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continental Federal lands outside of Alaska and west of the 100th meridian (GAO-18-593). GAO recommends that 

the Forest Service and BLM consult with each other and issue new regulations to implement the Forest Resources 

Conservation and Shortage Relief Act of 1997, as required by the Act, or seek legislative relief from the requirement 

to issue new regulations. Additionally, both agencies need to review their policies for relevance and effectiveness 

and issue new policies as necessary. The agencies generally agreed with GAO’s recommendations. In response, the 

Forest Service will consult with BLM to determine whether the two agencies need to develop new regulations or 

seek legislative relief. In addition, the agency will review existing policies and coordinate with BLM prior to any 

revisions.

Vegetation and Watershed Management

Current Activities

Vegetation and Watershed Management ensures the productive and sustainable use of National Forest System lands 

by improving the growth and health of timber stands, reducing the risk of severe flooding and erosion in forests 

affected by severe fire, and helping keep water clean.

Specifically Addressed Areas

The Forest Service is improving its ability to protect and produce abundant clean water through the implementation 

of a data stewardship plan for the National Hydrography Dataset (NHD) and Watershed Boundary Dataset (WBD) 

by harnessing the best methods for improving hydrographic data, focusing on meeting user needs, and providing 

consistent quality data for decision makers. These vital digital geospatial datasets, which map and model the surface 

water of the United States, are used across many programs and are the authoritative data sources providing the 

baseline information for all water resource assessments and monitoring efforts. A National NHD/WBD data 

stewardship strategy enables the Forest Service to develop and implement the required sound data stewardship 

practices to support the agency’s mission.

Forest Service tree and plant nurseries and their seedbanks are critical to the agency’s ability to address reforestation 

and revegetation needs. The Vegetation and Watershed Management program revitalizes the seedbanks in the 

nurseries to address planting needs and support additional work on the ground. With 88 percent of the agency tree 

planting needs due to wildland fire damage, the agency plans and collects the seeds in advance of fires that might 

severely impact local seed sources. This ensures the agency has the right kinds of seeds (species) from the right 

geographic areas to grow seedlings to respond to these fires. Collecting these seeds and safeguarding them is a 

critical step to ensure the agency can carry out post-fire reforestation work.

Selected Examples of Recent Progress

Restoring watershed function and resilience: The Forest Service tracks acres treated annually to sustain or restore 

watershed function and resilience as a composite indicator of progress and treatments on the ground accomplished 

through a wide variety of restoration actions and programs, including activities supported by other budget line items. 

For the Vegetation and Watershed Program activities, restoration treatments included a total, across all funding 

sources of: more than 183,000 acres of forest vegetation established; over 216,000 acres of forest vegetation 

improved; over 450,000 acres of soil and water improvements; nearly 1,058,000 acres of rangeland vegetation 

improved; and about 294,000 acres of invasive plants and noxious weeds treated.

Program Evaluations

The July 2017 USDA Office of Inspector General (OIG) Report on Forest Service Watershed Management (Audit 

Report 8001-0001-21) identified areas where management controls were inadequate, and where a performance 

element was not clearly defined related to implementation of the agency’s Watershed Condition Framework. During 

late FY 2017 and FY 2018, the agency implemented necessary policy and procedural changes, clarified 

requirements, and completed all field work to address the 7 audit recommendations so that final responsive actions 

were achieved for this audit in February 2018.

Minerals and Geology Management

Current Activities

The Minerals and Geology Management program ensures the productive and sustainable use of National Forest 

System (NFS) lands for energy and mineral development. National Forest System mineral and energy production 

contributes almost $5 billion to the Nation’s economy and supports approximately 32,000 jobs9. The program also 

secures and protects unique resources, such as fossils, caves, groundwater, wildlife habitat, and places of scientific, 

 

9 FY 2017 Energy & Mineral Production Information for National Forest System Lands.
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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.

Specifically Addressed Areas

Administering operations on over 6,700 Federal mineral leases covering over 5.3 million acres of NFS lands. Lands 

are currently leased for oil, natural gas, coal, phosphates, and other mineral commodities, or for geothermal energy. 

Federal mineral oil and gas operations include approximately 4,000 wells on these leases, as well as a variety of coal 

and other mineral mines. Royalties are paid to the government on any production. The agency also manages 

approximately 15,000 oil and gas wells for privately owned minerals on NFS lands.

Managing approximately 75,000 mining claims on NFS lands. The agency also manages hardrock (e.g., gold, silver) 

mines on both small operations and world-class mines, including a mine which produces critical minerals (deemed 

by use, geography, and availability of supply). In addition, the agency processes approximately 2,300 mineral 

material (e.g., sand, gravel) sale contracts or permits per year.

Selected Example of Recent Progress

Streamlining minerals, oil, and gas processes: The agency is proposing to streamline processes for locatable 

minerals and oil and gas operations on NFS lands by revising Forest Service regulations at 36 CFR 228 Subpart A 

and Subpart E. The agency initiated the process through Advance Notices of Proposed Rulemaking for both Subpart 

A, governing most hardrock minerals, and Subpart E, governing oil and gas resources. Proposed regulations are 

anticipated to be published in spring 2019.

Oil and gas leases: Incorporating oil and gas leasing analysis decisions into Forest Plan Revisions ensures oil and 

gas leasing decisions are completed in a timely manner. This combined process is proceeding in Regions 8 and 9 

and will reduce the environmental analysis and decision-making time for oil and gas development on National 

Forest System lands.

Impacts of groundwater: Modeling groundwater conditions related to proposed mining and oil field development 

projects has helped the agency assess potential impacts to groundwater and use that information to design mitigation 

strategies to ensure that groundwater continues to sustain streams, lakes, wetlands, and cave systems.

Land Use Authorization and Access (Previously Landownership Management)

Current Activities

The Land Use Authorization and Access program ensures the productive and sustainable use of National Forest 

System (NFS) lands for rural and national infrastructure. The Land Use Authorization and Access program lays the 

foundation for all land and natural resource management activities on NFS lands. The program secures and protects 

NFS lands and land interests. This program oversees permit processing, administration, and surveying for energy 

infrastructure and commercial interests on national forests and grasslands. Energy, utility, and communications 

infrastructure on NFS lands provides approximately $30 billion annually to the Gross Domestic Product, supports 

approximately 120,000 private sector jobs, and generates $65 million in land use authorization fees to the U.S. 

Treasury.

Specifically Addressed Areas

The Forest Service is surveying lands in advance of timber sales, acquiring rights-of-ways, and administering road 

agreements necessary for public and agency access for activities including timber production, transportation, 

recreation, and utility inspection.

The agency is administering permits for significant energy and utility infrastructure located on NFS lands. Current 

permits include about 2,700 power line authorizations (approximately 18,000 miles of powerlines) carrying 

electricity to 70 million homes; 1,600 oil and gas pipelines covering 6,600 linear miles; 300 Federal Energy 

Regulatory Commission (FERC) licensed facilities; 14,000 recreation residences; 1,526 designated communications 

sites for cellular and broadband technology; and significant water delivery infrastructure for communities.

Selected Example of Recent Progress

Use of strike teams and strategic project funding to improve efficiency and reduce the special uses backlog: 

Regional strike teams are being used to improve the efficiency of processing special use cases, and reduce the 

backlog of cases needing approval or closure. These teams have significantly reduced the special uses backlog. As 

of September 2018, the teams reduced the backlog by 49 percent as compared to January 2016.
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Permitting and land use authorization reform: Under this reform effort, also known as “Open Forests,” the agency is 

implementing the Pilot Christmas Tree Permit system in 2018 for four national forests - the Arapaho Roosevelt 

National Forest in Colorado, the Shoshone National Forest in Wyoming, the Flathead National Forest in Montana, 

and the Mt. Hood National Forest in Oregon. The system will allow users to buy Christmas tree permits online 

through the 2018 Christmas Season.

The ePermits/Open Forests team is also developing two online special use permits for the Mt. Baker Snoqualmie 

National Forest: 1) Temporary Outfitter Guide, and 2) Non-Commercial Group Use. The agency expects this system 

to become available to the public by March 2019.

Law Enforcement and Investigations

Current Activities

Law Enforcement and Investigations’ (LEI) primary focus is the protection of natural resources, the public, Forest 

Service employees, and visitors on National Forest System (NFS) lands. Forest Service law enforcement staff 

provide a critical presence on a vast amount of public lands, roads, and recreation sites. Common activities include: 

enforcement and complex criminal and civil investigations involving incidents of theft, assault, alcohol and drug 

use, unauthorized motor vehicle use, illegal occupancy, trespassing, wildland fire arson, drug smuggling and 

manufacturing, fraud, and assaults and threats to employees. The program maintains numerous cooperative 

partnerships with local agencies and communities to provide a wide range of services.

Specifically Addressed Areas

LEI continues to lead efforts to disrupt illegal marijuana cultivation by Drug Trafficking Organizations on NFS 

lands, which produce large amounts of trash, hazardous materials, and toxic chemicals that create a significant risk 

to wildlife, water, and habitat near grow areas. In FY 2018, nearly 530,000 marijuana plants were eradicated from 

NFS lands.

Nearly $5 million in funding has been dedicated to maintaining approximately 500 Cooperative Law Enforcement 

Agreements with State, county, and local partners. The agreements provide funding to law enforcement cooperators 

to enhance law enforcement coverage on NFS lands and ensure public safety. Under the Emergency Support 

Function # 13 - Public Safety and Security Annex, at FEMA’s request the Forest Service partners with the 

Department of Justice and other supporting agencies to help with law enforcement emergencies during the fiscal 

year.

Selected Examples of Recent Progress

Law enforcement incidents: In FY 2018, there were 4.7 documented law enforcement incidents per 10,000 forest 

visits, meeting the target (desired outcome) of six or fewer. Many were critical emergency incidents involving 

threats to the safety of the public, agency employees, or Federal property and resources.

Disaster response: LEI staff continue to assist cooperators and communities with disaster response and recovery. 

During the FY 2018 fire season, LEI teams were deployed to North Carolina and Florida to assist with assessment 

and recovery efforts following hurricanes Florence and Michael. The teams were qualified to operate in these types 

of disaster areas with little or no support and were capable of self-sustaining operations for 72-96 hours.

Program Evaluations

In FY 2018, the Forest Service continued to conduct multi-agency eradication operations and investigations to target 

marijuana cultivated on NFS lands and adjacent public lands and prioritize clean up and reclamation activities. The 

Forest Service continued its participation in the White House’s Office of National Drug Control Policy’s (ONDCP) 

High Intensity Drug Trafficking Area program to leverage resources with Federal, State, and local agencies.

With the increase of $2.5 million, the Forest Service supported increased marijuana eradication operations and 

marijuana grow site clean-up and reclamation on NFS lands. Also, in coordination with ONDCP and the U.S. 

Attorney General's Office, the Forest Service conducted Operation Forest Watch, a multi-agency operation with 

Federal, State, and local partners to investigate, eradicate, and reclaim illegal marijuana grow sites on public lands. 

The operation provided a surge in resources to aggressively deter and disrupt Drug Trafficking Organizations and 

reclaim public lands from illegal occupation and marijuana grows. Many of these marijuana sites have extremely 

toxic chemicals, pesticides, and rodenticides that significantly impact the environment, including the water sources 

that wildlife and many communities rely on for clean, safe drinking water.
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National Forest System Primary Authorities

Title of the Act or 

Program Summary of Authority Expiration date (if applicable)

Programs 

Affected

Public Law 

Citation USC Reference

Archaeological 

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. 470aa et 

seq.

Bankhead-Jones Farm 

Tenant Act of 1937

Authorizes and directs 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. 

NFS P.L. 75-210 7 U.S.C. 1011-

1013a

Cooperative Funds 

Act of June 30, 1914 

Authorizes the acceptance of 

contributions for cooperative 

work in forest investigations, 

protection, management, and 

improvement of the National 

Forest System.

NFS 38 Stat. 430 16 U.S.C. 498

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 species.

NFS P.L. 93–205 16 U.S.C. 1531 et 

seq.

Federal Lands 

Recreation 

Enhancement Act

Authorizes a fee retention 

program for certain recreation 

sites on Federal lands. Fees 

collected from users of 

recreation facilities are used to 

pay for on-the-ground operation, 

maintenance, and improvements 

of recreation sites and services to 

maintain and enhance recreation 

opportunities, visitor 

experiences, and related habitat. 

09/30/2020 NFS P.L. 108-447;

P.L. 113-235;

P.L. 114-53;

P.L. 114-223;

P.L. 115-56;

P.L. 115-245

16 U.S.C. 6801-

6814
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Title of the Act or 

Program Summary of Authority Expiration date (if applicable)

Programs 

Affected

Public Law 

Citation USC Reference

Good Neighbor 

Authority

Authorizes the Secretary of 

Agriculture, via cooperative 

agreement or contract, to allow 

State, County and Tribal 

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 nonFederal or private lands. 

NFS P.L. 113-79;

P.L. 115-141;

P.L. 115-334

16 U.S.C 2113a

Grazing Permits / 

Rescissions Act of 

1995

The terms and conditions 

contained in the expired, 

transferred, or waived 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

P.L. 104-19, 

Sec. 504

43 U.S.C. 1752

Healthy Forests 

Restoration Act 

(HFRA) of 2003

Authorizes $20 million annually 

for cross-boundary fuels 

reduction appropriations and 

$660 million annually for 

hazardous fuel reduction through 

FY 2023. Authorizes various 

forest health restoration 

programs including the Water 

Source Protection Program, the 

Watershed Condition 

Framework, and hazardous fuels 

reduction. Provides for expedited 

environmental review, a predecisional Forest Service 

administrative review process, 

and other measures on National 

Forest lands that are at-risk of 

catastrophic fire. Authorizes

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;

P.L. 113-79;

P.L. 115-141;

P.L. 115-334

16 U.S.C. 6501 et 

seq.

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 54 U.S.C. 100101 et 

seq.
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Title of the Act or 

Program Summary of Authority Expiration date (if applicable)

Programs 

Affected

Public Law 

Citation USC Reference

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. Ch. 2003

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. 96-470 30 U.S.C. 226, 601-

602, and 611

Multiple-Use 

Sustained-Yield Act 

of 1960

Provides that 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 -531

Mutually Beneficial 

Agreements

Authority for the Forest Service 

to enter in to mutually beneficial 

agreements with public or 

private agencies, organizations, 

institutions, or persons.

ALL P.L. 111-11, 

sec. 3001

16 U.S.C. 1011; 16 

U.S.C. 565a-1

Forest and Rangeland 

Renewable Resources 

Planning Act of 1976 

as amended by the 

National Forest 

Management Act 

(NFMA) of 1976

Requires that the Forest Service 

prepare and revise land 

management plans (LMP) for 

national forests to provide for 

multiple use and sustained yield 

of the products and services 

obtained from the forest. 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, 

1061 et seq.

National Forest Ski 

Area Permit Act of 

1986

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
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Title of the Act or 

Program Summary of Authority Expiration date (if applicable)

Programs 

Affected

Public Law 

Citation USC Reference

Omnibus Public Land 

Management Act of 

2009

Authorizes the Collaborative 

Forest Management Program to 

select and fund ecological 

restoration treatments for priority 

forest landscapes for up to $80 

million annually and for 

proposals up to 10 years.

9/30/2023 CFLRP P.L. 111-11 16 U.S.C. 7303

Organic 

Administration Act of 

1897

Authorizes 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 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. 

NFS, WFM 16 U.S.C. 473-478, 

479-482, and 551

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

Service First Establish a program for Federal 

land management agencies 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

Cooperative Law 

Enforcement

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 subdivisions 

for expenditures incurred in such 

activities.

NFS, SPF 85 Stat. 303 16 U.S.C. 551a

Small Tracts Act of 

January 12, 1983

This Act authorizes the sale, 

exchange, or interchange of 

various categories of National 

Forest System lands of forty

acres or less and of $500,000 or 

less in value.

NFS P.L. 97-465

P.L. 115-334

16 U.S.C. 521e

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

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
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Title of the Act or 

Program Summary of Authority Expiration date (if applicable)

Programs 

Affected

Public Law 

Citation USC Reference

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
2020 USDA EXPLANATORY NOTES – AGRICULTURAL ENGINEERING SERVICE

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CAPITAL IMPROVEMENT AND MAINTENANCE

LEAD-OFF TABULAR STATEMENT

Table FS-1. Lead-Off Tabular Statement

Item Amount

2019 Annualized Continuing Resolution....................................................................................... $449,000,000 

Change in Appropriation ............................................................................................................... -15,000,000 

Budget Estimate, 2020................................................................................................................... 434,000,000 

APPROPRIATIONS LANGUAGE

The appropriations language follows (new language underscored; deleted matter enclosed in brackets):

For necessary expenses of the Forest Service, not otherwise provided for, [$449,000,000]$434,000,000, to 

remain available through September 30, [2022]2023, for construction, capital improvement, maintenance and 

acquisition of buildings and other facilities and infrastructure; and for construction, reconstruction and 

maintenance of forest roads and trails, and for decommissioning of roads that are no longer needed, including 

unauthorized roads that are not part of the transportation system, as authorized by 16 U.S.C. 532–538 and 23 

U.S.C. 101 and 205[: Provided, That funds becoming available in fiscal year [2019]2020 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].

Change Description

The change (line 6) removes the CHIMP to defer this amount by remittance to the Treasury, thereby making the 

Road and Trails (Ten Percent) Fund set aside available for obligation.
2020 USDA EXPLANATORY NOTES – AGRICULTURAL ENGINEERING SERVICE

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PROJECT STATEMENT

Project Statement (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec. SY

2020

Budget SY

Discretionary Appropriations:

Facilities...................................... $50,106 292 $120,179 365 $135,841 361 - - $135,841 361

Roads.......................................... 137,218 966 191,870 1,059 177,055 1,049 - - 177,055 1,049

Trails........................................... 52,932 559 57,262 527 57,262 522 -$10,737 -58 46,525 464

Deferred Maintenance & 

Infrastructure Improvement .. -90 - - - - - - - - -

Legacy Roads and Trails............. 22,164 75 -8,898 41 - - - - - -

Capital Improvement and 

Maintenance – Other a.......... 81,024 - 78,842 - 78,842 - -4,263 - 74,579 -

Subtotal.................................... 343,354 1,892 439,255 1,992 449,000 1,932 -15,000 -58 434,000 1,874

Supplemental Appropriations:

Emerg. Supp. (PL 115-123)........ - - 91,600 - - - - - - -

Subtotal.................................... - - 91,600 - - - - - - -

Total Adjusted Approp................ 343,354 1,892 530,855 1,992 449,000 1,932 -15,000 -58 434,000 1,874

Rsc, Trns, Other (Net).................... 20,660 - 9,745 - - - - - - -

Total Appropriation .................... 364,014 1,892 540,600 1,992 449,000 1,932 -15,000 -58 434,000 1,874

Transfers In:

Fire Transfer Repayment ............ - - 5,917 - - - - - - -

Subtotal.................................... - - 5,917 - - - - - - -

Transfers Out:

IRR - Legacy Roads and Trails... -14,743 - - - - - - - - -

Fire Transfer ............................... -5,917 - -15,662 - - - - - - -

Subtotal.................................... -20,660 - -15,662 - - - - - - -

Recoveries, Other (Net).................. 12,830 - 7,273 - 10,052 - - - 10,052 -

Bal. Available, SOY....................... 11,912 - 2,420 - 90,197 - +9,052 - 99,249 -

Total Available ........................... 368,096 1,892 540,548 1,992 549,249 1,932 -5,949 -58 543,300 1,874

Bal. Available, EOY ...................... -2,420 - -90,197 - -99,249 -9,052 - -108,300 -

Total Obligations ........................ 365,676 1,892 450,351 1,992 450,000 1,932 -15,000 -58 435,000 1,874

a Other includes cost pool authority.

Note: The project statement includes the supplemental while the Four-Year Summary of Appropriation does not.

FOUR-YEAR SUMMARY OF APPROPRIATIONS AND STAFF YEARS

Four-Year Summary of Appropriations and Staff Years (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec.

Chg 

Key SY

2020 

Budget SY

Facilities.......................... $71,390 292 $151,000 365 $151,000 361 - - $151,000 361

Roads .............................. 175,094 966 218,000 1,059 218,000 1,049 - - 218,000 1,049

Trails............................... 77,530 559 80,000 527 80,000 522 -$15,000 (1) -58 65,000 464

Legacy Roads and Trails. 40,000 75 - 41 - - - - - -

Capital Improvement 

and Maintenance 

Total........................ 364,014 1,892 449,000 1,992 449,000 1,932 -15,000 -58 434,000 1,874
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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JUSTIFICATIONS

Facilities

The Facilities program funds the operation of recreational, research, and administrative facilities necessary to ensure 

productive and sustainable use of the national forests and grasslands. This program provides the largest number and 

widest range of accessible recreation facilities in the country, including campgrounds, picnic areas, visitor centers, 

target ranges, and observation sites.

Continuation of the program is critical because:

 The Facilities program addresses maintenance, capital improvement, and management of almost 40,000 

buildings, 4,700 water systems, 4,700 wastewater systems, almost 30,000 recreation sites, and more than 460 

Forest Service-owned dams.

 Currently there is a $1.23 billion deferred maintenance backlog for buildings.

 Volunteers, concessionaires, and other partners are engaged to enhance recreation experiences and help 

maintain nearly 70 percent of recreation sites.

Forest Service recreation attracts approximately 149 million visitors annually. With the high demand and interest in 

outdoor recreation, the agency is improving access to facilities for everyone, including seniors, families, and the 

estimated 57 million Americans with disabilities. The Facilities program provides the infrastructure enabling the 

agency to conduct active resource and land management activities, perform research, and support recreational 

amenities to serve the public.

Base funds will be used to support 361 staff years to maintain infrastructure and address sites with the highest risk to 

public safety, health, and environment.

The funding and staff years are maintained ($151,000,000 and 361 staff years available in 2019). In FY 2020, of 

the requested funding, $135,841,000 is the adjusted appropriation when accounting for $15,159,000 in cost 

pools allocations.

At this funding level, the Forest Service will address health and safety issues, operations and maintenance of 

high priority facilities that support fire suppression and fuels management, administration of national 

forests, recreation and research.

The agency plans to invest in capital improvement projects and decommissioning projects that will address 

repairs and rehabilitation of mission critical buildings and reduce the deferred maintenance backlog. In 

order to do this, the Agency is developing a comprehensive capital improvement plan (CCIP) that will 

guide future investments and prioritize a multi-year program of work for buildings, facilities and 

transportation systems.

In addition, investment will continue in the oversight needed to ensure compliance of FS owned dams with 

Federal Guidelines for Dam Safety. Investments will also focus on critical repairs for High Hazard dams.

Roads

The Roads program is essential for the management, protection, public use, and enjoyment of 193 million acres of 

National Forest System (NFS) lands, as well for meeting the Forest Service’s goal of producing 3.7 billion board 

feet of timber in FY 2020. Producing this amount of timber will require investing in the roads system. Given that 

timber is a priority, the agency is making careful choices within budget constraints; therefore, all requested capital 

improvement funding directed towards the Roads program will support timber production and public safety.

Continuation of this program is critical because:

 Roads provide access to NFS lands for public recreation and access for first responders in emergencies. Access 

is also critical for improving forest conditions, harvesting timber, and reducing hazardous fuels.

 Rural communities and local economies depend on Forest Service roads to access NFS lands, which provide 

jobs in timber, mining, and other natural resource extraction industries.

Virtually all agency and public use of national forests and grasslands require travel over the roads system. Demand 

for the multiple uses of national forests, grasslands, and watersheds is growing, heightening the importance of road 

access to improve landscape conditions and reduce the threat of catastrophic damage from fires, insects, and disease.

The Forest Service road network includes over 370,000 miles of road and 6,200 road bridges. Roads and bridges 

comprise over $3 billion of the agency’s $5.5 billion deferred maintenance backlog. USDA’s Office of Inspector 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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General recommended that the Forest Service develop an integrated strategy to address the deferred maintenance 

backlog, including a long-term vision for the agency’s infrastructure portfolio. Congress also directed the agency to 

develop an infrastructure strategy, which will be submitted to Congress in spring 2019.

Funds will be used to support 1,049 staff years to maintain national forests and grasslands transportation system that 

comply with applicable regulations and codes for the benefit of all users.

The funding and staff years are maintained ($218,000,000 and 1,049 staff years available in 2019). In FY 2020, 

of the requested funding, $177,055,000 is the adjusted appropriation when accounting for $40,945,000 in cost 

pool allocations.

Funding will be used for the operations and maintenance of existing roads and reconstruction of existing roads, 

including timber haul roads. This funding will enable the Forest Service to provide an increased level of 

critical support to improve forest conditions and reach the FY 2020 timber goal of 3.7 billion board feet. 

The agency will also be able to address maintenance issues to protect life and property.

The agency plans to invest in road and bridge capital improvement projects that support timber production and 

fuel reduction, enhance/improve safe access to high-use recreation sites, rehabilitate bridges in poor 

condition, and protect water quality and natural resources.

Trails

Trails ensure productive and sustainable use of National Forest System lands by local communities and millions of

hikers, hunters, fishermen, and other visitors annually. The Forest Service is the lead agency responsible for trailwide coordination, and the administration of six National Scenic and Historic Trails.

Continuation of the program is critical because:

 The trail system contributes to the $10.3 billion of Gross Domestic Product and 143,000 full-time and part-time 

jobs supported annually by the Recreation, Heritage, and Wilderness program.

 The National Forest System trail network has over 158,000 miles of trails, including over 32,000 miles in 

designated wilderness areas, and serves more than 50 million hikers annually.

 Trails and trail bridges represent nearly $300 million of the agency’s $5.5 billion deferred maintenance backlog.

The benefits to rural communities from visitors to National Forest System lands who are using trails continue long 

after visitors leave the forest. Visitors spend money in rural communities on everything from gear to lodging and

restaurants.

Base funds will be used to support 464 staff years to maintain a sustainable trail system that is well-designed and 

well-constructed and that supports communities. The funding change is requested for the following items:

(1) A decrease of $15,000,000 and a decrease of 58 staff years ($80,000,000 and 522 staff years available in 2019). 

In FY 2020, of the requested funding, $46,525,000 is the adjusted appropriation when accounting for 

$18,475,000 in cost pool allocations.

At the requested funding level, the Forest Service will maintain priority trail facilities to provide for public 

safety. The Agency will also use the funding to implement recommendations in the National Forest 

System Trail Stewardship Act of 2016 and the Agency’s 2017 National Trail Strategy.

Roads and Trails (10 percent) Fund

Ten percent of all National Forest Fund receipts received by the Forest Service are used to repair or reconstruct 

roads, bridges, and trails on National Forest System (NFS) lands to correct road and trail deficiencies that adversely 

affect ecosystems. Since FY 2008, Congress has directed that funds becoming available be transferred to Treasury. 

The 2020 Budget proposes to retain these funds for use as intended on NFS lands, which may include NFS lands in 

the wildland urban interface where there is an abnormally high risk of fire. Allocation decisions are not yet

determined.

Other

This line identifies projected cost pool amounts for the requested appropriation in the following amounts:

A) From Facilities: $15,159,000.

B) From Roads: $40,945,000.

C) From Trails: $18,475,000

D) Total $74,579,000 cost pool allocations proposed in FY 2020.
2020 USDA EXPLANATORY NOTES – AGRICULTURAL ENGINEERING SERVICE

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CLASSIFICATION BY OBJECTS

Classification by Objects (dollars in thousands)

Item 

No. Item 2017 Actual

2018 

Actual

2019 

Estimate

2020 

Budget

Personnel Compensation:

11.0 Total personnel compensation ............................................. $124,147 $149,782 $145,270 $140,909

12.0 Personnel benefits................................................................ 48,163 55,931 54,246 52,618

13.0 Benefits for former personnel .............................................. 2,036 2,883 2,796 2,712

Total, personnel comp. and benefits................................. 174,346 208,596 202,312 196,239

Other Objects:

21.0 Travel and transportation of persons.................................... 4,775 6,033 6,182 5,959

22.0 Transportation of things....................................................... 2,343 2,960 3,033 2,924

23.1 Rent payments to GSA ........................................................ 2,779 3,511 3,598 3,468

23.2 Rental payments to others.................................................... 4,287 5,417 5,550 5,350

23.3 Communications, utilities, and misc. charges...................... 6,261 7,911 8,105 7,813

24.0 Printing and reproduction .................................................... 469 593 607 585

25.1 Advisory and assistance services......................................... 43 54 56 54

25.2 Other services ...................................................................... 82,418 104,139 106,695 102,850

25.3 Purchases of goods and services.......................................... 45,840 57,921 59,343 57,204

25.4 Operation and maintenance of facilities............................... 3,540 4,473 4,583 4,418

25.5 Research and development contracts................................... 37 47 48 46

25.6 Medical care ........................................................................ 18 23 23 22

25.7 Operation and maintenance of equipment............................ 4,086 5,163 5,290 5,099

26.0 Supplies and materials......................................................... 9,161 11,575 11,859 11,432

31.0 Equipment............................................................................ 4,429 5,596 5,734 5,527

32.0 Land and structures.............................................................. 5,708 7,212 7,389 7,123

41.0 Grants, subsidies, and contributions .................................... 15,078 19,052 19,519 18,816

42.0 Insurance claims and indemnities........................................ 58 73 75 72

Total, other objects........................................................... 191,330 241,755 247,688 238,761

99.9 Total, new obligations................................................... 365,676 450,351 450,000 435,000

DHS Building Security Payments (included in 25.3).............. 45 45 43 43 

Position Data:

Average Salary (dollars), ES Position.................................. 176,858 181,055 183,771 186,527

Average Salary (dollars), GS Position ................................. 65,406 68,190 69,213 70,251

Average Grade, GS Position ................................................ 9.2 9.5 9.6 9.6
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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STATUS OF PROGRAMS

The Capital Improvement and Maintenance appropriation supports several programs designed to maintain and 

manage infrastructure on Forest Service lands, including Facilities, Roads, and Trails. The agency’s assets include 

158,726 miles of trails; 370,754 miles of roads; 29,706 recreation facilities; 39,370 buildings, fire and aviation 

infrastructure; 13,401 road and trail bridges; 4,710 drinking water systems; 4,736 wastewater systems; and 497

agency owned dams. The agency provides access to national forests for natural resource and fire management, 

public enjoyment, recreation, and education. Additionally, the agency manages facilities for forest research, dams, 

fire and aviation assets, and infrastructure that supports recreation and natural resource-dependent industries. The 

following programs within the Forest Service support and manage its infrastructure portfolio.

Facilities

Current Activities

The facilities program manages assets that serve recreation, research, fire and aviation management, nurseries, and 

administrative program areas. The program manages the largest number, and widest range, of accessible recreation 

facilities in the country, including campgrounds, picnic areas, visitor centers, trails, shooting ranges, and interpretive 

sites. Additionally, the program manages infrastructure used for fire suppression and fuels management, including 

aircraft maintenance and operations facilities, air-tanker bases, retardant facilities, fire cache warehouses, and fire 

lookouts. Facilities managed by the agency also include administrative offices, communication sites, dams, 

warehouses, bunkhouses, housing, fire engine bays, and fleet management and maintenance buildings.

Specifically Addressed Areas

Development of national facilities strategies and processes that will support the Comprehensive Capital 

Improvement Plan (in development), including identifying a two-year program of work for facilities, improving 

consistency and transparency in facilities asset management, and facilities data management processes to improve 

data quality, sustainability, and accuracy.

The agency is improving oversight of Forest Service-owned dams, including compliance with the Federal 

Guidelines for Dam Safety. This program is prioritizing dams using a risk-based methodology to reduce the overall 

risk of the dam portfolio, and thereby reduce risk to the public. The current focus is to address jurisdictional dams 

that meet the national inventory criteria.

Selected Examples of Recent Progress

Capital improvement and decommissioning work: In FY 2018, the Forest Service dedicated $81 million to capital 

improvement and decommissioning projects. Of that, $67 million was used for capital improvement projects that 

renovate and replace existing infrastructure assets that deliver agency-wide benefits, and $14 million was used for 

decommissioning 339 unneeded assets. The investment reduces deferred maintenance by $76 million and the gross 

footprint by 185,000 square feet.

Safety management for agency-owned communication towers: The Forest Service implemented the first year of an 

interagency agreement with the Federal Aviation Administration (FAA) to perform structural safety inspections for 

all communications towers within the next five years. The agreement will improve compliance with Occupational 

Safety and Health Administration and American National Standards Institute requirements for periodic safety 

inspections. The agency owns, operates, and maintains more than 1,700 communications assets nationwide that are 

used to facilitate law enforcement, wildland fire suppression, public safety, and routine forest management. In FY 

2018, the FAA inspected 177 communication towers and lookouts.

Increasing community safety downstream from the Mt. St. Helens’ Spirit Lake Outlet Tunnel: The Forest Service 

funded approximately $8.5 million in FY 2018 and $500,000 in FY 2019 to continue to address flood inundation 

risks associated with the Spirit Lake Outlet Tunnel in communities located along the Toutle, Cowlitz, and Columbia 

Rivers in Washington State. Work includes outlet core drilling, NEPA analysis, and the outlet gate replacement.

Program Evaluations

OIG Audit Report 08601-0004-31: The 2017 audit investigated Forest Service management and controls associated 

with the $5.2 billion backlog of deferred maintenance, specifically: 1) reducing deferred maintenance; 2) mitigating 

threats to public health and safety; and 3) accurately and consistently reporting deferred maintenance costs. In 

response to the recommendations, the agency published the Forest Service 5-Year Deferred Maintenance 

Management Strategy 2018-2022 in March 2018. The strategy details how the agency will right-size the portfolio of 

agency-owned assets and improve the planning and decision-making for capital investments. Implementation of the 

strategy will help to reduce the inventory of agency-owned assets, decrease the deferred maintenance backlog, and 

reduce the overall facilities maintenance demand.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Roads

Current Activities

The Roads program ensures the productive and sustainable use of National Forest System lands for many purposes, 

including hunting, fishing, and hiking, use by first responders in emergencies, timber harvests, and access for rural 

communities. The Roads program is essential for the management, protection, public use, and enjoyment of 193 

million acres of National Forest System lands, as well as meeting the FY 2019 timber goal of 3.7 billion board feet.

Specifically Addressed Areas

Comprehensive bridge construction and inspection programs to improve bridge quality. This ensures public safety, 

adequate access, and resource protection.

Maintaining the quality of Forest Service roads. This provides safe access to recreation, restoration, timber harvest, 

and other areas while protecting water quality and natural resources.

Removal of fish passage barriers where Forest Service roads, bridges, and trails may be contributing to water quality 

problems in streams and water bodies that support threatened, endangered, and sensitive species or community 

resources.

Selected Examples of Recent Progress

Bridge Inspection and Operations: There are approximately 6,200 road bridges on National Forest System roads. 

The agency is completing Bridge Load Ratings (determining safe load capacity) that provide information needed to 

authorize use by overloaded vehicles. In FY 2018, the agency completed approximately 1,000 load ratings. The 

agency is prioritizing the evaluation of bridges that require weight restrictions or repairs. In several instances, 

strengthening high priority bridges has increased their load-bearing capacity, allowing us to remove weight 

restrictions and better manage timber harvests. Forest Service bridge inspectors are required to be National Bridge 

Inspection Standards-qualified, and the agency is implementing training and program reviews to ensure consistency 

in procedures and methods.

FY 2018 Bridge Capital improvement Projects: The Forest Service addressed the backlog of bridge rehabilitation 

and replacement needs by directing $8.75 million towards bridge and major road structure projects on roads 

providing critical access to support agency restoration goals and recreation opportunities. The funds repaired or 

replaced one tunnel and 29 bridges.

Partnership, Leveraging Funds, and Strategic Spending: The Forest Service receives Federal Highway 

Administration (FHWA) funds to enhance access to national forest lands and repair roads after natural disasters. The 

agency uses FHWA funds for larger projects that would be difficult to fund otherwise. The Forest Service and 

FHWA work together to enhance road safety management, develop long range transportation planning, and collect 

road condition surveys across the Federal Lands Transportation Program transportation network. The agency is 

developing a National Long Range Transportation Plan that will align with the agency’s strategic plan with a focus 

on transportation funding and decision-making, and will be the first time the agency has provided national guidance 

to promote consistency and transparency in managing the Roads program.

Program Evaluations

OIG Audit Report 08601-0004-31: The 2017 audit investigated Forest Service management and controls associated 

with the $5.2 billion backlog of deferred maintenance, specifically: 1) reducing deferred maintenance; 2) mitigating 

threats to public health and safety; and 3) accurately and consistently reporting deferred maintenance costs. OIG was 

concerned about the random sampling method used to determine the national deferred maintenance value. The 

agency re-evaluated its method and proposed a modified version that was acceptable to the OIG and is currently 

implemented into the roads deferred maintenance program.

Trails

Current Activities

The Forest Service manages the largest system of trails in the country. Trails ensure productive and sustainable 

access and use of National Forest System (NFS) lands for local communities and millions of hikers, hunters, anglers, 

and other visitors annually. The Forest Service is the lead agency responsible for trail-wide coordination and 

administration of six National Scenic and Historic Trails.

Specifically Addressed Areas

Enhancing and sustaining the trail system by improving the operation, maintenance, capital improvement, and 

management of 158,726 miles of trails and 13,401 road and trail bridges. The agency is also supporting outdoor 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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recreation and tourism by supporting 143,000 jobs and providing access to 84 million people to enjoy NFS trails 

annually.

Implementing the National Strategy for a Sustainable Trail System which is increasing collaborative stewardship by 

partners, volunteers, and community stakeholders to achieve a trail system that is well designed and maintained. 

These efforts serve American citizens by connecting them to public lands and by providing associated health and 

economic benefits to communities.

Implementing the National Forest Trails Stewardship Act and the 10-Year Sustainable Trails Stewardship 

Challenge, which focus on increasing the role of partners and volunteers, including capacity, trail maintenance, and 

implementation of 15 national trail maintenance priority areas.

Selected Examples of Recent Progress

National Strategy for a Sustainable Trail System and 10-Year Trails Challenge: The Forest Service’s first ever 

national trail strategy, launched in 2018, established the vision for a sustainable trail system over the next decade

through collaborative stewardship with a wide array of public interests, including volunteers, trails groups, Tribes, 

and local businesses. As part of the strategy, the Forest Service initiated a 10-Year Sustainable Trails Stewardship 

Challenge which, through strategic and locally adaptive efforts on national forests agency-wide, is improving 

combined agency and partner capacity to care for trails and improve trail conditions.

Trail Maintenance Priority Areas: Fifteen national trail maintenance priority areas were established per the National 

Forest System Trails Stewardship Act. A broad combination of partners and volunteers provide effective trail 

maintenance assistance in these areas. Established in 2018, these large geographic areas are the focus of targeted 

trail maintenance and improvement efforts on nearly 29,600 miles of trails. Trail maintenance and improved trail 

conditions are occurring in all 15 trail maintenance priority areas including the Bob Marshall Wilderness Complex 

and Adjacent Lands, Continental Divide National Scenic Trail, Northern California Wilderness Areas, Angeles 

National Forest, White Mountain National Forest Partner Complex, and Iditarod National Historic Trail ‘Southern 

Trek’ trail maintenance priority areas.

Capital Improvement and Maintenance Primary Authorities

Title of the Act or 

Program Summary of Authority Expiration date (if applicable)

Programs 

Affected

Public Law 

Citation

USC 

Reference

General Exchange Act 

of 1922

Authorizes the exchange of lands within 

the boundaries of National Forests 

and cutting of timber in National 

Forests for exchange of lands. 

NFS 42 Stat. 465; 

43 Stat. 

1098

16 U.S.C. 

485, 486

Weeks Act Authorizes the purchase land for 

National Forests if the purchase was 

deemed necessary to protect rivers, 

watersheds, and headwaters in the 

eastern United States.

NFS 36 Stat. 961 16 U.S.C. 515
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LAND ACQUISITION

LEAD-OFF TABULAR STATEMENT

Lead-Off Tabular Statement

Item Amount

2019 Annualized Continuing Resolution....................................................................................... $65,379,000 

Change in Appropriation ............................................................................................................... -65,379,000 

Budget Estimate, 2020................................................................................................................... -

APPROPRIATIONS LANGUAGE

The appropriations language follows (new language underscored; deleted matter enclosed in brackets):

[LAND ACQUISITION (CANCELLATION)]

[Of the unobligated balances available under this heading that were derived from the Land and 

Water Conservation Fund, $17,000,000 are hereby permanently cancelled.]

[ACQUISITION OF LANDS FOR NATIONAL FOREST SPECIAL ACTS]

[For acquisition of lands within the exterior boundaries of the Cache, Uinta, and Wasatch 

National Forests, Utah; the Humboldt-Toiyabe National Forest in Nevada; the Angeles, San 

Bernardino, Sequoia, and Cleveland National Forests, California; and the Ozark and Ouachita 

National Forests, Arkansas, as authorized by law, $700,000, to be derived from forest receipts.] 

[ACQUISITION OF LANDS TO COMPLETE LAND EXCHANGES]

[For acquisition of lands, such sums, to be derived from funds deposited by State, county, or 

municipal governments, public school districts, or other public school authorities, and for 

authorized expenditures from funds deposited by non-Federal parties pursuant to Land Sale and 

Exchange Acts, pursuant to the Act of December 4, 1967 (16 U.S.C. 484a), to remain available 

through September 30, 2022 (16 U.S.C. 516–617a, 555a; Public Law 96–586; Public Law 76–

589, 76–591; and Public Law 78–310).] 

Change Description

The first change (first paragraph) removes cancellation language as no cancellations are proposed.

The second change (second paragraph) proposes elimination of funding for the Acquisition of Lands for National 

Forest Special Acts program.

The third change (third paragraph) proposes elimination of funding for the Acquisition of Lands to Complete Land 

Exchanges program.
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PROJECT STATEMENT

Project Statement (dollars in thousands, staff years (SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec. SY

2020

Budget SY

Discretionary Appropriations:

Land Acquisition......................... $29,377 60 $48,775 48 $64,337 45 -$64,337 -45 - -

Acquisition of Land for National 

Forests Special Acts.............. 950 - 850 - 850 - -850 - - -

Acquisition of Lands to Complete 

Land Exchanges.................... - - - 1 192 1 -192 -1 - -

Total Adjusted Approp ............ 30,327 60 49,625 49 65,379 46 -65,379 -46 - -

Rsc, Trns, Other (Net).................... 25,038 - 15,562 - - - - - - -

Total Appropriation a.................. 55,365 60 65,187 49 65,379 46 -65,379 -46 - -

Transfers In:

Fire Transfer Repayment ............ - - 25,038 - - - - - - -

Subtotal.................................... - - 25,038 - - - - - - -

Transfers Out:

Fire Transfer ............................... -25,038 - -40,600 - - - - - - -

Subtotal.................................... -25,038 - -40,600 - - - - - - -

Recoveries, Other (Net).................. 6,304 - 7,682 - 4,230 - - $4,230 -

Bal. Available, SOY....................... 33,924 - 20,812 - 34,770 - +17,609 - 52,379

Total Available ........................... 70,555 60 78,119 49 104,379 46 -47,770 -46 56,609 -

Lapsing Balances ........................... -373 - -289 - - - - - - -

Bal. Available, EOY ...................... -20,812 - -34,770 - -52,379 +51,770 - -609

Total Obligations ........................ 49,370 60 43,060 49 52,000 46 +4,000 -46 56,000 -

a FY 2017 and FY 2018 actual appropriations are determined by collections, so they do not match enacted levels in the appropriations bill, 

which are estimates.

FOUR-YEAR SUMMARY OF APPROPRIATIONS AND STAFF YEARS

Four-Year Summary of Appropriations and Staff Years (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec.

Chg 

Key SY

2020 

Budget SY

Land Acquisition............................ $54,415 60 $64,337 48 $64,337 45 -$64,337 (1) -45 - -

Acquisition of Land for National 

Forests Special Acts................. 950 - 850 - 850 - -850 (2) - - -

Acquisition of Lands to Complete 

Land Exchanges....................... 216 - 192 1 192 1 -192 (3) -1 - -

Land Acquisition Total ............... 55,581 60 65,379 49 65,379 46 -65,379 -46 - -
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JUSTIFICATIONS

Land Acquisition

The Land Acquisition program funds the acquisition and donation of lands, waters, and related interests within the

National Forest System to further agency goals for restoration, outdoor recreation and public access, habitat for

wildlife, and to protect water quality.

(1) A decrease of $64,337,000 and 45 staff years ($64,337,000 and 45 staff years available in 2019).

Elimination of the program is proposed in FY 2020 because the Forest Service will focus on reducing wildland 

fire risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and 

contributing to rural economic prosperity,

Acquisition of Lands for National Forests Special Acts

Base funding for 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.

(2) A decrease of $850,000 ($850,000 and 0 staff years available in 2019).

Elimination of the program is proposed in FY 2020 because the Forest Service will focus on reducing wildland 

fire risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and 

contributing to rural economic prosperity.

Acquisition of Lands to Complete Land Exchanges

Base funding for this program provides for the acquisition of lands with funds collected from the exchange or sale of 

National Forest System lands with State, county, or municipal governments, public school authorities, or other nonFederal parties, allowed under various authorities.

(3) A decrease of $192,000 and 1 staff year ($192,000 and 1 staff year available in 2019).

Elimination of the program is proposed in FY 2020 because the Forest Service will focus on reducing wildland 

fire risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and 

contributing to rural economic prosperity.
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CLASSIFICATION BY OBJECTS

Classification by Objects (dollars in thousands)

Item 

No. Item 2017 

Actual

2018 

Actual

2019 

Estimate

2020 

Budget

Personnel Compensation:

11.0 Total personnel compensation........................................... $4,655 $4,210 $3,952 -

12.0 Personnel benefits............................................................. 1,701 1,532 1,438 -

13.0 Benefits for former personnel............................................ 1 13 12 -

Total, personnel comp. and benefits............................... 6,357 5,755 5,403 -

Other Objects:

21.0 Travel and transportation of persons................................. 133 115 144 $173

22.0 Transportation of things.................................................... 112 97 121 146

23.1 Rent payments to GSA...................................................... 63 55 68 82

23.2 Rental payments to others................................................. 105 91 114 137

23.3 Communications, utilities, and misc. charges ................... 113 98 122 147

24.0 Printing and reproduction.................................................. 5 4 5 7

25.1 Advisory and assistance services ...................................... 4 3 3 4

25.2 Other services.................................................................... 588 510 637 766

25.3 Purchases of goods and services ....................................... 504 437 546 656

25.4 Operation and maintenance of facilities............................ 5 4 5 7

25.7 Operation and maintenance of equipment ......................... 24 21 26 31

26.0 Supplies and materials....................................................... 61 53 66 79

31.0 Equipment......................................................................... 45 39 49 59

32.0 Land and structures........................................................... 41,235 35,764 44,672 53,686

41.0 Grants, subsidies, and contributions.................................. 16 14 17 21

Total, other objects......................................................... 43,012 37,305 46,597 56,000

99.9 Total, new obligations a.............................................. 49,370 43,060 52,000 56,000

DHS Building Security Payments (included in 25.3)........... 1 1 1 1 

Position Data:

Average Salary (dollars), ES Position ............................... 179,652 182,853 185,596 188,380 

Average Salary (dollars), GS Position............................... 84,060 85,176 86,454 87,750 

Average Grade, GS Position ............................................. 11.6 11.5 11.6 11.6 

a For FY 2020, prior fiscal year balances will be used for necessary expenses for administering acquisition projects to further agency goals for 

restoration, outdoor recreation and public access, habitat for wildlife, and to protect water quality.
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STATUS OF PROGRAMS

The Forest Service Land Acquisition program activities include land exchanges, purchasing lands, accepting land 

donations, and selling land in qualifying situations, such as under the Small Tracts Act (P.L. 97-465). These 

activities are all characterized as land adjustments. Overall, the Forest Service strives to achieve a footprint where 

the agency can effectively maintain and improve land management, public and emergency access, environmental 

conservation, and the sustainability of the national forests and grasslands.

Land Acquisition

Current Activities

The Forest Service utilizes Land and Water Conservation Fund (LWCF) Act of 1965 funding within the boundaries 

of national forests, within Wilderness Areas, and to acquire inholdings. Land acquisitions improve recreational 

access and create efficiencies for priority stewardship activities such as hazardous fuels treatments and watershed 

protection. LWCF appropriations also support land exchanges by funding cash equalization payments and needed 

staff.

Specifically Addressed Areas

Acquisitions completed in 2018 supported new and improved recreational access for a wide array of outdoor 

activities in 14 States (6 eastern States and 8 western States), with an average acreage of 129 acres.

In 2018, the Forest Service completed two land exchanges: the Bridge Creek exchange on the Bridger-Teton 

National Forest in Wyoming and the Honey Hill Tri-partite exchange in South Carolina. Together, these two 

exchanges added 732 acres of high-value lands to the national forests and transferred lands of nearly equal value to 

members of the public.

Selected Examples of Recent Progress

Upper Ammonoosuc River, White River National Forest, New Hampshire: With strong support from the Select

boards of each town, 180 acres in the village of Stark and 603 acres in Milan, New Hampshire were acquired by the 

White Mountain National Forest in early 2018. The acquisition protected important public access to the West Milan 

and Rocky Pond snowmobile trails, and the Unknown Pond, Mill Brook, and the Kilkenny Ridge hiking trails. 

Approximately one mile of frontage along the Upper Ammonoosuc River was also conserved, and public road 

access is now secured for other national forest lands that have historically been difficult to access for hunting, 

fishing, forest management, wildfire suppression, and a variety of other outdoor recreation activities.

Bitterroot Trails Tract, Bitterroot National Forest, Montana: The Bitterroot National Forest recently acquired 120 

acres within the Bass Creek recreation area, the second most popular recreation destination on the forest. This low 

elevation system of trails provides year-round recreational use but is of primary importance to the Back Country 

Horsemen who start conditioning their horses on these trails in the spring before their summer wilderness trail 

maintenance trips. This acquisition had substantial local support as evidenced by a 50 percent funding match at 

$128,000 coming from the following groups: Back Country Horsemen, Montana Fish and Wildlife Conservation 

Trust, Mule Deer Foundation, National Wild Turkey Federation, and the Rocky Mountain Elk Foundation.

Divided Mountain, George Washington and Jefferson National Forest, Virginia: The 187-acre Divided Mountain 

acquisition will provide additional public road access into the Cherokee National Forest at the Tennessee/Virginia 

border, and additional access to the 3,682 acre Pond Mountain Game Lands in North Carolina, which allows 

horseback riding, hiking, fishing, hunting, and cross-country skiing. The parcel connects to the Rogers Ridge Scenic 

Area; the Virginia Creeper National Recreation Trail; the Mount Rogers National Recreation Area; Lewis Fork 

Wilderness; and Grayson Highlands State Park, all in Virginia.

Program Evaluations

The General Accounting Office is completing an audit of Land Acquisition work in the Forest Service funded by 

LWCF. The audit final report is anticipated in early calendar year 2019.

Acquisition of Lands for National Forests Special Acts

Current Activities

The Acquisition of Lands for National Forests Special Acts provides for the acquisition of lands to protect 

watersheds, minimize soil erosion, and rehabilitate specific national forests in Nevada, Utah, California, and 

Arkansas.
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Specifically Addressed Areas

Acquisition of a single parcel can provide significant large-scale benefits by ensuring watersheds and ecosystems 

remain intact. These tracts can also be the key to significantly increasing the availability of existing Federal lands to 

the public.

Selected Example of Recent Progress

The Harrison Tract, Ouachita National Forest, Arkansas: In 2018, the Ouachita National Forest used funds retained 

from certain activities on the forest, such as timber sales, to acquire 160 acres within the Ouachita National Forest, 

located in Scott County, Arkansas. The tract is a complete inholding with Forest Service land on all sides. The 

acquisition protects steep slopes from residential development.

Acquisition of Lands to Complete Land Exchanges

Current Activities

The Acquisition of Lands to Complete Land Exchanges provides for the acquisition of lands with funds collected 

from the exchange or sale of National Forest System lands with States, county, or municipal governments, public 

school authorities, or other non-Federal parties.

Specifically Addressed Areas

By connecting fragmented landscapes, the Forest Service can effectively promote the long-term health and 

sustainability of the Nation’s forests and grasslands, provide greater recreation access, and manage lands more 

effectively and efficiently.

Connecting fragmented landscapes enhances restoration and protects watersheds, especially in the wildland-urban 

interface. Wildfire can cause economic and ecological losses, and can pose threats to people, property, and 

communities.

Selected Example of Recent Progress

The Forest Service has initiated inholding acquisitions in Mississippi, Arizona, and New Mexico that are eligible to 

receive Sisk Act funds.

Land Acquisition Primary Authorities

Title of the Act or 

Program Summary of Authority Expiration date (if applicable)

Programs 

Affected

Public Law 

Citation

USC 

Reference

General Exchange Act 

of 1922

Authorizes the exchange of lands within 

the boundaries of National Forests 

and cutting of timber in National 

Forests for exchange of lands. 

NFS 42 Stat. 465; 

43 Stat. 

1098

16 U.S.C. 

485, 486

Weeks Act Authorizes the purchase land for 

National Forests if the purchase was 

deemed necessary to protect rivers, 

watersheds, and headwaters in the 

eastern United States.

NFS 36 Stat. 961 16 U.S.C. 515
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OTHER APPROPRIATIONS

LEAD-OFF TABULAR STATEMENT

Table FS-2. Lead-Off Tabular Statement

Item Amount

2019 Annualized Continuing Resolution.......................................................................... $4,610,000

Change in Appropriation .................................................................................................. +1,722,000

Budget Estimate, 2020...................................................................................................... 6,332,000

APPROPRIATIONS LANGUAGE

The appropriations language follows (new language underscored; deleted matter enclosed in brackets):

COMMUNICATION SITES ADMINISTRATION

Amounts deposited in the special account established by section 8705(f)(1) of the Agriculture 

Improvement Act of 2018 (Public Law 115–334) in fiscal year 2019 shall be available to cover the costs 

described in subsection (c)(3) of such section, and shall remain available until expended: Provided, That such 

amounts shall be transferred to the "National Forest System" account.

[RANGE BETTERMENT FUND]

[For necessary expenses of range rehabilitation, protection, and improvement, 50 percent of all 

moneys received during the prior fiscal year, as fees for grazing domestic livestock on lands in 

National Forests in the 16 Western States, pursuant to section 401(b)(1) of Public Law 94–579, 

to remain available through September 30, 2022, of which not to exceed 6 percent shall be 

available for administrative expenses associated with on-the-ground range rehabilitation, 

protection, and improvements.] 

[GIFTS, DONATIONS AND BEQUESTS FOR FOREST AND RANGELAND RESEARCH]

[For expenses authorized by 16 U.S.C. 1643(b), $45,000, to remain available through 

September 30, 2022, to be derived from the fund established pursuant to the above Act.] 

MANAGEMENT OF NATIONAL FOREST LANDS FOR SUBSISTENCE USES

For necessary expenses of the Forest Service to manage Federal lands in Alaska for subsistence 

uses under title VIII of the Alaska National Interest Lands Conservation Act (Public Law 96–487), 

[$2,500,000]$1,832,000, to remain available through September 30, [2022]2023.

Change Description

The first change (first paragraph) requests funds for communications sites program administration to implement a 

new fee in the 2018 Farm Bill.

The second change removes the request for appropriation of funds from receipts collected for the Range Betterment 

Fund program. Prior fiscal year balances will be used for necessary expenses of range rehabilitation, protection, and 

improvement of lands on national forests in western States.

The third change (second paragraph) removes the request for appropriation of funds derived from the Gifts, 

Donations, and Bequests for Forest and Rangeland Research program.
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PROJECT STATEMENT

Project Statement (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec. SY

2020

Budget SY

Discretionary Appropriations:

Range Betterment Fund .............. $4,243 6 $3,804 9 $3,804 10 -$3,804 -10 - -

Gifts, Donations, & Bequest for 

Forest & Rangeland 

Research ............................... 10 - 29 - 29 - -29 - - -

Management of National Forest 

Lands for Subsistence Uses .. 2,500 13 2,500 11 2,500 13 -668 -5 $1,832 8

Communication Site 

Administration a....................

- - - - - - +4,500 - 4,500 -

Total Appropriation b............... 6,753 19 6,333 20 6,333 23 -1 -15 6,332 8

Recoveries, Other (Net).................. 64 - 80 - 72 - - - 72 -

Bal. Available, SOY....................... 1,469 - 2,253 - 2,505 - +405 - 2,910

Total Available ........................... 8,286 19 8,666 20 8,910 23 +404 -15 9,314 8

Lapsing Balances ........................... - - - - - - - - - -

Bal. Available, EOY ...................... -2,253 - -2,505 - -2,910 +2,596 - -314

Total Obligations ........................ 6,033 19 6,161 20 6,000 23 +3,000 -15 9,000 8

a Amounts deposited in the Communication Site Administration Account will be transferred to the National Forest System Account.

b FY 2017 and FY 2018 actual appropriations are determined by collections, so they do not match enacted levels in the appropriations bill, 

which are estimates.

FOUR-YEAR SUMMARY OF APPROPRIATIONS AND STAFF YEARS

Four-Year Summary of Appropriations and Staff Years (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec.

Chg 

Key SY

2020

Budget SY

Range Betterment Fund................ 2,320 6 2,065 9 2,065 10 -2,065 (1) -10 - -

Gifts, Donations, & Bequest for 

Forest & Rangeland Research 45 - 45 - 45 - -45 (2) - - -

Management of National Forest 

Lands for Subsistence Uses ... 2,500 13 2,500 11 2,500 13 -668 (3) -5 1,832 8

Communication Site 

Administration ....................... - - - - - - +4,500 (4) - 4,500 -

Other Appropriations Total....... 4,865 19 4,610 20 4,610 23 +1,722 -15 6,332 8
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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JUSTIFICATIONS

Range Betterment Fund

(1) A decrease of $2,065,000 and 10 staff years ($2,065,000 and 10 staff years available in 2019).

Elimination of the program is proposed in FY 2020 because the Forest Service will focus on reducing wildland 

fire risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and 

contributing to rural economic prosperity. Prior fiscal year balances will be used for necessary expenses of 

range rehabilitation, protection, and improvement of lands on national forests in western States.

Gifts, Donations, & Bequest for Forest and Rangeland Research

(2) A decrease of $45,000 ($45,000 and 0 staff years available in 2019).

Elimination of the program is proposed in FY 2020 because the Forest Service will focus on reducing wildland 

fire risk, contributing to the improvement of forest and grassland conditions across shared landscapes, and 

contributing to rural economic prosperity.

Management of National Forest Lands for Subsistence Use

This program provides rural Alaskan residents a subsistence priority to harvest fish and wildlife on Federal lands 

over sport and commercial uses.

Continuation of this program is critical because:

 The program keeps fish and wildlife harvests at sustainable levels so that rural Alaskans can depend on these 

critical resources.

 Many rural Alaskans are members of Tribal communities where economic opportunities are severely limited, 

making subsistence hunting and fishing a vital resource.

The Alaska National Interest Lands Conservation Act (ANILCA) (16 U.S.C. 3101) provides that rural Alaskan 

residents receive 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.

The Subsistence program provides vital employment in remote rural areas, keeps fish and wildlife harvests 

sustainable, enforces regulations, and educates subsistence users. The program consults with Tribes and Alaska 

Native Corporations on the subsistence program, monitors fisheries and wildlife trends, and directly contracts with 

Tribal governments to support this work.

Funds will be used to support 8 staff years to provide employment in isolated rural communities, educate 

subsistence users, develop and enforce regulations, and monitor fish and wildlife populations.

The funding change is requested for the following items:

(3) A decrease of $668,000 and 5 staff years ($2,500,000 and 13 staff years available in 2019).

Funding will be used for analyzing and implementing special actions to address immediate conservation and 

subsistence use issues. The Forest Service will continue to focus all available funds on managing fish and 

wildlife populations for sustainability and on providing vital employment in remote rural communities.

Communication Sites

This program provides for communication site uses on National Forest System (NFS) lands by providing 

telecommunications capabilities, including cellular coverage and broadband access, to rural communities.

(4) An increase of $4,500,000 and 0 staff years ($0 and 0 staff years available in 2019)

Funding will be used to better manage the growing use of National Forest System land for communications 

facilities. The agency will use the funds improve service to its customers, emergency responders, and 

visitors by providing expanded telecommunications capabilities, including cellular coverage and 

broadband access. These expanded capabilities will benefit rural communities and areas where little or no 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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capability currently exists, enable greater coordination in emergency response situations, and increase 

overall safety for visitors, agency staff, and first responders.
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CLASSIFICATION BY OBJECTS

Classification by Objects (dollars in thousands)

Item 

No. Item 2017 

Actual

2018 

Actual

2019 

Estimate

2020 

Budget

Personnel Compensation:

11.0 Total personnel compensation ............................................ $1,326 $1,481 $1,703 $592

12.0 Personnel benefits............................................................... 519 548 630 219

13.0 Benefits for former personnel............................................. 1 - - -

Total, personnel comp. and benefits................................ 1,846 2,029 1,555 812

Other Objects:

21.0 Travel and transportation of persons .................................. 95 94 101 186

22.0 Transportation of things...................................................... 8 8 8 16

23.1 Rent payments to GSA ....................................................... 1 1 1 2

23.2 Rental payments to others................................................... - - - -

23.3 Communications, utilities, and misc. charges..................... 16 16 17 31

24.0 Printing and reproduction ................................................... 3 3 3 6

25.2 Other services..................................................................... 1,512 1,492 1,605 2,957

25.3 Purchases of goods and services......................................... 178 176 189 348

25.4 Operation and maintenance of facilities ............................. - - - -

25.7 Operation and maintenance of equipment .......................... 8 8 8 16

26.0 Supplies and materials........................................................ 1,904 1,879 2,021 3,724

31.0 Equipment .......................................................................... 160 158 170 313

32.0 Land and structures............................................................. 14 14 15 27

41.0 Grants, subsidies, and contributions................................... 288 284 306 563

Total, other objects.......................................................... 4,187 4,132 4,445 8,188

Total, new obligations.................................................. 6,033 6,161 6,000 9,000

DHS Building Security Payments (included in 25.3)............. - - - -

Position Data:

Average Salary (dollars), GS Position................................ 68,734 64,694 65,664 66,649 

Average Grade, GS Position............................................... 9.5 8.9 9.0 9.0 
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STATUS OF PROGRAMS

Other Appropriations has three major programs, including the Range Betterment Fund; Gifts, Donations and 

Bequests for Forest and Rangeland Research; and Management of National Forest Lands for Subsistence Use. The 

primary purpose of these three distinctive programs is to provide maximum benefits to the public through proper 

management and use of natural resources in the Nation’s forests and rangelands.

Range Betterment Fund

Current Activities

This program allocates one-half of grazing receipts from National Forest System lands in 16 western States to 

rehabilitate, protect, and improve rangelands on the National Forest System lands from which the receipts were 

collected.

Specifically Addressed Areas

Providing proper range management, including constructing and improving structures such as fences and livestock 

watering facilities, which are essential to grazing permittees for effective livestock management.

Managing vegetation to foster healthy, resilient rangeland ecosystems by removing invasive plants and reducing fire 

risk.

Selected Examples of Recent Progress

Rangeland vegetation improvement efforts in FY 2018: The work accomplished with the Range Betterment Fund is 

important to maintain rangeland health, water quality, and soil health. Funds are used to carry out non-structural 

rangeland improvement activities, such as removing noxious weeds and invasive plants, controlling brush, and 

reducing fire risk on rangelands by limiting plant densities and/or by changing species composition. In FY 2018, the 

Range Betterment program conducted over 334,000 acres of rangeland vegetation improvement work and treated 

nearly 9,000 acres of noxious weeds.

Gifts, Donations and Bequests for Forest and Rangeland Research.

Current Activities

Gifts, Donations and Bequests for Forest and Rangeland Research is a special account that holds gifts, donations, 

and bequests that are used to establish or operate any forest and rangeland research facility. The Forest Service 

continues to receive donations from individuals and businesses for research work units and other organizational subunits to further their research and development programs.

Management of National Forest Lands for Subsistence Use

Current Activities

This program provides rural Alaskan residents vital employment in remote rural areas; monitors fish and wildlife 

populations and adjusts regulations to keep harvests sustainable; enforces regulations; and educates subsistence 

users. The Alaska National Interest Lands Conservation Act (ANILCA) (16 U.S.C. 3101) provides a subsistence 

priority to harvest fish and wildlife over sport and commercial uses on Federal lands. 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.

Specifically Addressed Areas

Examining the annual harvest levels of fish and wildlife population to provide a reliable food supply for rural Alaska 

communities.

Hiring local residents to monitor and collect fish and wildlife population data, thereby providing vital employment 

in isolated Tribal communities where opportunities are severely limited.

By hiring local residents, the program builds capacity in Tribal governments to participate in State and Federal 

regulatory decisions regarding fish and wildlife issues.

Identifying conservation issues through effectively evaluating rule promulgation for harvesting fish and wildlife. 

Regulation is essential to maintaining sustainable populations of fish and game.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Selected Examples of Recent Progress

Sitkoh Lake weir, Tongass National Forest: Sitkoh Lake sockeye salmon have long been an important subsistence 

resource for the people of the village of Angoon. To monitor the number of salmon returning to the lake to spawn, 

the Forest Service and the Angoon Community Association (ACA) are partnering to operate the Sitkoh Lake weir. 

As salmon enter the lake, they pass through a pair of net weirs equipped with video cameras. The live video is

relayed to a computer recording system in Angoon. There, ACA technicians use motion-triggered video clips to 

count the number and species of fish entering the lake. Surveillance cameras provide a real-time view of the site, and 

the solar power supply can be remotely monitored and controlled. The entire system can be accessed over the 

internet, allowing project biologists to view live video and monitor the weir’s operation from anywhere in the world, 

without the need for an onsite crew. This provides fisheries managers with real-time information at a fraction of the 

cost of similar projects requiring a constant human presence.

Supporting Rural Communities: Over the life of the Forest Service subsistence program, nearly $17 million has been 

directly funded through contracts with Tribal governments to perform essential subsistence resources monitoring 

and management work. In 2018, this program funded five direct contracts with Tribes and supported 27 jobs in rural 

Alaskan communities with chronically high unemployment rates.

Strengthening collaboration with the Tribes: The Forest Service continued to expand consultation on all facets of the 

Federal subsistence program, including annual rulemaking, with all Alaska Tribes and Native Corporations to 

further strengthen relationships and to be respectful of the current and historical role of native Alaskans in managing 

for their customary and traditional subsistence uses.

Other Appropriations Primary Authorities

Title of the Act or 

Program Summary of Authority Expiration Date (if applicable)

Programs 

Affected

Public Law 

Citation

U.S.C. 

Reference

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

Agriculture 

Improvement Act of 

2018

Authorizes the Forest Service to 

establish, collect, and retain a 

new administrative fee to 

cover costs incurred by the 

Forest Service to manage 

communication site uses on 

National Forest System (NFS) 

lands.

09/30/2023 NFS P.L. 115-334

Alaska National Interest 

Lands Conservation 

Act of 1980

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. 

NFS P.L. 96-487 16 U.S.C. 3111-

3126

Federal Land Policy and 

Management Act of 

1976

Established the Range Betterment 

Fund consisting of 50 percent 

of all monies received by the 

United States as fees for 

grazing livestock on the 

National Forests in the 16 

contiguous western States. 

NFS P.L. 94-579 43 U.S.C. 1751

Public Rangelands 

Improvement Act of 

1978

Authorizes the improvement of 

range conditions of the public 

rangelands. Also authorizes 

the allocation of one-half of 

grazing receipts from National 

NFS P.L. 95-514 43 U.S.C. 1901
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Title of the Act or 

Program Summary of Authority Expiration Date (if applicable)

Programs 

Affected

Public Law 

Citation

U.S.C. 

Reference

Forest System lands in the 16 

Western States for rangeland 

rehabilitation, protection, and 

improvements. 

Special Acts Authorizes acquisition of land 

within the boundaries of 

certain national forests and, to 

pay for the acquisitions, 

authorizes the appropriation of 

receipts derived from the sale 

of natural resources within the 

particular national forest.

NFS 58 Stat. 227; 58 

Stat. 227; 

58 Stat. 

228; 54 

Stat. 297; 

54 Stat. 

299; and 54 

Stat. 402; 

58 Stat. 

228; 54 

Stat. 46
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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WILDLAND FIRE MANAGEMENT

LEAD-OFF TABULAR STATEMENT

Lead-Off Tabular Statement

Item Amount

2019 Annualized Continuing Resolution....................................................................................... $2,880,338,000 

Change in Appropriation ............................................................................................................... -529,718,000 

Budget Estimate, 2020................................................................................................................... 2,350,620,000 

APPROPRIATIONS LANGUAGE

The appropriations language follows (new language underscored; deleted matter enclosed in brackets):

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, emergency rehabilitation of burned over National Forest System lands and water, 

[$2,504,986,000]$2,350,620,000, to remain available through September 30, [2022]2023: 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 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 of the amounts made available under this 

heading in the Consolidated and Further Appropriations Act, 2015 (Public Law 113–225) for the purpose of 

acquiring aircraft for the next generation airtanker fleet, $65,000,000 shall remain available until expended 

for the purpose of enhancing firefighter mobility, effectiveness, efficiency and safety: Provided further, That 

the Secretary of Agriculture and the Secretary of Interior may transfer funds appropriated to the "Wildland 

Fire Management" accounts, 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 under this heading,$1,011,000,000 shall be available for wildfire 

suppression operations, and is provided to the meet the terms of section 251(b)(2)(F)(ii)(I) of the Balanced 

Budget and Emergency Deficit Control Act of 1985, as amended.

In addition to the amounts provided under this heading for wildfire suppression operations, $1,950,000,000, 

to remain available until expended, is additional new budget authority as specified for purposes of section 

251(b)(2)(F) of the Balanced Budget and Emergency Deficit Control Act of 1985: Provided, That the 

Secretary of Agriculture may transfer such amounts to the Department of Interior for wildfire suppression 

operations.

[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 funds designated for wildfire suppression shall be assessed for cost pools on 

the same basis as such assessments are calculated against other agency programs: Provided further, That of 

the amounts appropriated under this heading for acquiring aircraft for the next-generation airtanker fleet in 

title III of division F of Public Law 113–235, $65,000,000 are hereby permanently cancelled.]

Change Description

The first change (line 6, paragraph 1) removes language for transfer of Hazardous Fuels funds to the “National 

Forest System” account as Hazardous Fuels is now included under the “National Forest System” account.

The second change (line 13, paragraph 1 and paragraph 2) updates language the purpose of enhancing firefighting 

mobility and updates language for the fire funding fix.

The third change (line 1, paragraph 3) removes language according to the fire funding fix.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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PROJECT STATEMENT

Project Statement (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec. SY

2020

Budget SY

Discretionary Appropriations:

Preparedness ................................... $1,067,620 6,936 $1,084,991 9,575 $986,544 9,324 +$18,171 -539 $1,004,715 8,785

Suppression..................................... 2,169,341 3,752 2,042,589 2,030 1,556,818 1,364 -545,818 -79 1,011,000 1,285

Hazardous Fuels a............................ 366,000 1,884 3,378 - - - - - - -

National Fire Capacity b.................. 78,000 57 - - - - - - - -

Rural Fire Capacity c....................... 15,000 - - - - - - - - -

Wildland Fire Management – Other 

d

................................................ - - 190,647 - 336,976 - -2,071 - 334,905 -

Subtotal ....................................... 3,695,961 12,629 3,321,605 11,605 2,880,338 10,688 -529,718 -618 2,350,620 10,070

Supplemental Appropriations:

Emerg. Supp. (PL 115-72) .............. - - 144,993 - - - - - - -

Total Adjusted Approp ................ 3,695,961 12,629 3,466,598 11,605 2,880,338 10,688 -529,718 -618 2,350,620 10,070

Rsc, Trns, Other (Net) ........................ -862,546 107 -401,760 - - - - - - -

Total Appropriation......................... 2,833,415 12,736 3,064,838 11,605 2,880,338 10,688 -529,718 -618 2,350,620 10,070

Transfers In:

FLAME........................................... 489,835 - - - - - - - - -

FLAME - from DOI........................ 50,000 - - - - - - - - -

Fire Transfer ................................... 381,506 - 505,953 - - - - - - -

Department of Interior..................... - - - - - - - - - -

Subtotal ....................................... 921,341 - 505,953 - - - - - - -

Transfers Out:

National Forest System – IRR......... -24,000 - - - - - - - - -

Fire Transfer ................................... -15,000 - -99,507 - - - - - - -

National Fire Plan ........................... -19,795 -107 - - - - - - - -

Department of Interior..................... - - -4,686 - - - - - - -

Subtotal ....................................... -58,795 -107 -104,193 - - - - - - -

Adjustment for Expenditure Transfer 

from Trust Fund e........................ 140,000 - 234,500 - - - - - - -

Adjustment for Wildfire Suppression 

Cap .............................................. - - - - - - +1,950,000 - 1,950,000 -

Recoveries, Other (Net)...................... 192,675 - 146,153 - 169,414 - - - 169,414 -

Bal. Available, SOY........................... 118,775 - 164,204 - 94,851 - +343,752 - 438,603

Total Available ............................... 4,147,411 12,629 4,011,455 11,605 3,144,603 10,688 +1,764,034 -618 4,908,637 10,070

Bal. Available, EOY........................... -164,204 - -94,851 - -438,603 -498,034 - -936,637

Total Obligations ............................ 3,983,207 12,629 3,916,604 11,605 2,706,000 10,688 +1,266,000 -618 3,972,000 10,070

a Hazardous Fuels is shifted to National Forest System in FY 2019; FY 2018 shifted for comparability.

b National Fire Capacity is shifted from State and Private Forestry in FY 2019; FY 2018 is shifted for comparability; previously State Fire 

Assistance.

c Rural Fire Capacity is shifted to State and Private Forestry in FY 2019; FY 2018 shifted for comparability; previously Volunteer Fire 

Assistance.

d Other includes cost pool authority.

e Adjustment for Expenditure Transfer from Trust Fund is for fire transfer from Knutson-Vandenberg Trust Fund.

Note: The project statement includes the supplemental while the Four-Year Summary of Appropriations does not.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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FOUR-YEAR SUMMARY OF APPROPRIATIONS AND STAFF YEARS

Four-Year Summary of Appropriations and Staff Years (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec.

Chg 

Key SY

2020 

Budget SY

Preparedness................................ $1,082,620 6,936 $1,323,520 9,575 $1,323,520 9,324 +$16,100 (1) -539 $1,339,620 8,785

Suppression ................................. 1,248,000 3,752 1,556,818 2,030 1,556,818 1,364 -545,818 (2) -79 1,011,000 1,285

Hazardous Fuels .......................... 390,000 1,884 - - - - - - - -

National Fire Plan........................ 19,795 107 - - - - - - - -

National Fire Capacity................. 78,000 57 - - - - - - - -

Rural Fire Capacity...................... 15,000 - - - - - - - - -

Wildland Fire Management 

Total.................................. 2,833,415 12,736 2,880,338 11,605 2,880,338 10,688 -529,718 -618 2,350,620 10,070

JUSTIFICATIONS

Preparedness

The Wildland Fire Management program supports wildfire prevention, mitigation, education, and response 

operations, including initial and extended attack. The program maintains an organization that ensures timely, riskinformed, and effective response to wildfires on Federal, state, tribal, county, and private lands.

Continuation of this program is critical because:

 The Forest Service supports response to wildfire incidents across all jurisdictions throughout the Nation.

 The Forest Service provides the majority of aviation assets (like smokejumpers, hot shots, and other aviation 

assets) for wildland firefighting efforts on National Forest System (NFS) lands, other Federal, state, tribal, and 

county jurisdictions.

The agency response to wildfire has shifted from seasonal to year-round fire activity with the incidence of larger and 

more complex fires increasing each year. The nation is experiencing more extreme fire behavior and high risk, high 

cost wildfire suppression operations in the wildland-urban interface have become the norm over the last two

decades.

It is estimated that 80 million acres on National Forest System lands and 70,000 communities are at risk from 

uncharacteristically severe wildfires. Annually, there are typically more than 7,000 fires on NFS lands. The Forest 

Service utilizes the Preparedness program with more than 10,000 firefighters and 900 fire engines, and a robust 

aviation program (18 exclusive use airtankers and 108 exclusive use helicopters) to maintain an organization that 

ensures safe, timely, appropriate, and effective response.

A well-funded Preparedness program ensures appropriate response to wildfire, including initial and extended attack 

operations which are essential to minimizing the negative impacts of wildfire to highly valued resources and 

essential infrastructure.

The Forest Service continues to improve Preparedness budgeting by evaluating cost centers, eliminating 

redundancies, and being more consistent in contracting for assets on incidents. The agency will continue to rightsize its aviation assets, evaluating the best mix of asset types and ownership models to provide the necessary 

aviation capability to meet firefighting mission requirements for Federal, state, tribal, county, and local wildland 

firefighting missions of protecting communities and natural resources from wildfires.

Funds will be used to support 8,785 staff years, internal and external training, along with prevention, mitigation, and 

education; development and advancement of firefighting technology; organizational learning; and modernization of 

the agency’s aviation fleet.

(1) An increase of $16,000,000 and a decrease of 539 staff years ($1,323,520,000 and 9,324 staff years available in 

2019). In FY 2020, of the requested funding, $998,545,000 is the adjusted appropriation when accounting for 

$340,975,000 in cost pool allocations. The decrease in staff years reflects the adjusted ratio of staff years 

between Preparedness and Suppression to account for the firefighter base 8 salary shift that occurred in FY 

2019.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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The increase in funding is a restoration of funds that were decreased in FY 2018 as a result of the elimination 

of Cost Pool 9. The funds will be invested at the regional level to facilitate continued investment in 

standardization of preparedness resources.

Suppression

The Suppression program is the primary funding source for wildfire extended attack suppression response and large 

fire support. The Suppression program allows the Forest Service to maintain a strong emergency response role, 

working alongside other Federal, state, tribal, and local government partners to protect life and property in 

suppression response operations. In addition, this program helps improve forest conditions and maintain resilient 

landscapes by managing naturally ignited, unplanned wildfires, and accomplish resource management goals.

Continuation of this program is critical because:

 Wildfire threatens public safety and human life and can incur private property losses, damage to utility 

reliability, damage to recreation facilities, and the loss of timber resources.

 The Forest Service is the recognized world leader in wildland fire management and incident command, 

providing training and support to State and local partners, and international entities in managing wildland fire.

Longer fire seasons; bigger fires and more extreme fire behavior; and high risk, high cost wildfire suppression 

operations in the wildland-urban interface have become the norm over the last two decades. Over the last ten years, 

across all jurisdictions, an average of more than 68,000 wildfires burned about 6.5 million acres of Federal, Tribal, 

State, and private land and more than 4,100 structures. Of these wildfires, about 85 percent are human caused.

The cost of suppression varies greatly between fires based on a variety of factors, including fuels, weather, and 

topography. 

In FY 2020, the Forest Service will continue to implement actions that ensure accountability in spending 

Suppression funds. The agency will continue to employ specialized teams that provide enhanced analytics for better 

decision-making on key wildfire incidents (Risk Management Assessment Teams), and will continue to implement 

risk management training for line officers. The Forest Service will continue prioritized investments to highest risk 

areas and, working with partners in the early stages, will plan for the best co-management strategies ahead of a fire. 

The agency also continues to pursue increased cost recovery and equitable cost-sharing arrangement for firefighting 

assets with partners.

Funds will be used to support 1,285 staff years, as well as fund firefighters and equipment in direct support of 

wildfire incidents; aviation asset operations; incident support functions; and wildfire management administration.

The funding change is requested for the following items:

(2) A decrease of $ 545,818,000 and 79 staff years ($1,556,818,000 and 1,364 staff years available in 2019).

This funding decrease is due to the fire funding fix enacted in Division O of Public Law 115-141, the Stephen 

Sepp Wildfire Suppression Funding and Forest Management Activities Act. This fire funding fix includes 

a new adjustment under section 251(b)(2)(F) of BBEDCA for wildfire suppression activities. The 

BBEDCA permits this adjustment up to a maximum amount specified in the law if the underlying 

appropriations bill first funds a base level for these activities. The base level is defined as the average 

costs over ten years for wildfire suppression operations that was requested in the President's 2015 Budget. 

These amounts have been determined to be $1,011 million for the Forest Service. The 2020 Budget 

requests this base amount for wildfire suppression and seeks the full $2,250 million adjustment authorized 

in BBEDCA for 2020, with $1,950 million included for Forest Service and $300 million included for the 

Department of the Interior. This base funding level will remain constant until FY 2027.

Other

This line identifies projected cost pool amounts for the requested appropriation in the following amounts:

A) From Preparedness: $334,905,000.

B) From Suppression Operations: no cost poll allocation because of the base 8 cost shift to Preparedness.

C) Total $334,905,000 cost pool allocations proposed in FY 2020.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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CLASSIFICATION BY OBJECTS

Classification by Objects (dollars in thousands)

Item 

No. Item 2017 

Actual

2018 

Actual

2019 

Estimate

2020

Budget

Personnel Compensation:

11.0 Total personnel compensation ............................................. $1,062,772 $1,006,025 $926,531 $872,957

12.0 Personnel benefits................................................................ 350,601 313,945 289,138 272,419

13.0 Benefits for former personnel.............................................. 29,376 23,308 21,466 20,225

Total, personnel comp. and benefits................................. 1,442,749 1,343,278 1,237,135 1,165,602

Other Objects:

21.0 Travel and transportation of persons.................................... 98,278 99,550 56,823 108,566

22.0 Transportation of things....................................................... 19,313 19,563 11,167 21,335

23.1 Rent payments to GSA ........................................................ 16,514 16,728 9,548 18,243

23.2 Rental payments to others.................................................... 35,412 35,870 20,475 39,119

23.3 Communications, utilities, and misc. charges...................... 45,750 46,342 26,452 50,539

24.0 Printing and reproduction .................................................... 898 910 519 992

25.1 Advisory and assistance services......................................... 6,684 6,770 3,865 7,384

25.2 Other services...................................................................... 1,516,815 1,536,439 877,006 1,675,598

25.3 Purchases of goods and services.......................................... 230,236 233,215 133,120 254,338

25.4 Operation and maintenance of facilities............................... 1,535 1,555 888 1,696

25.5 Research and development contracts................................... 251 254 145 277

25.6 Medical care ........................................................................ 264 267 153 292

25.7 Operation and maintenance of equipment ........................... 7,652 7,751 4,424 8,453

26.0 Supplies and materials......................................................... 138,500 140,292 80,079 152,998

31.0 Equipment ........................................................................... 27,876 28,237 16,118 30,794

32.0 Land and structures.............................................................. 293 297 169 324

41.0 Grants, subsidies, and contributions .................................... 393,280 398,368 227,390 434,449

42.0 Insurance claims and indemnities........................................ 907 919 524 1,002

Total, other objects........................................................... 2,540,458 2,573,326 1,468,865 2,806,398

99.9 Total, new obligations................................................... 3,983,207 3,916,604 2,706,000 3,972,000

DHS Building Security Payments (included in 25.3).............. 257 257 246 246 

Position Data:

Average Salary (dollars), ES Position ................................. 177,227 180,331 183,036 185,782 

Average Salary (dollars), GS Position ................................. 53,397 53,515 54,318 55,132 

Average Grade, GS Position................................................ 7.6 7.5 7.6 7.6 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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STATUS OF PROGRAMS

The Wildland Fire Management appropriation enables the Forest Service to provide personnel and assets needed to 

protect communities and resources from the threats of increasingly frequent catastrophic wildfire events. The 

demand for effective wildland fire management grows more critical as the length of the fire season grows to be 

almost year-round, the wildland-urban interface continues to expand, and fuel loads remain at very high levels. 

These factors create an increased probability of catastrophically large fires that risk life and property.

The costs of fire management activities continue to rise, and the resulting impact of those rising costs manifested 

itself in prior fiscal years by negatively impacting the rest of the Forest Service’s appropriated budget, disrupting 

non-fire program implementation and execution through the practice of “fire transfers” – borrowing funds from nonfire programs to cover the cost of suppression. Fire transfers created a substantial loss in momentum for critical land 

management programs that ultimately exacerbate the complexity and intensity of fire suppression operations in 

future years. The Wildfire Suppression Funding and Forest Management Activities Act of the Consolidated 

Appropriations Act, 2018 (P.L. 115–141) provided additional budget authority, which, beginning in FY 2020, will 

minimize fire transfer impacts to the rest of the agency and create some stabilization within the appropriated 

Wildland Fire Management budget. This additional budget authority enables the agency to expand its focus beyond 

just current-year operations towards the long-term modernization of the wildland firefighting workforce and 

organization. Modernization of the firefighting organization will ensure that the Forest Service is producing a 

professional organization capable of responding to the challenges of the current wildland fire environment in FY 

2020 and beyond.

The budgetary stability provided by the additional budget authority will be leveraged by the agency to more 

strategically approach programmatic and fiscal management of the fire program. To this end, the agency is 

implementing improved oversight and accountability assessment and reporting procedures. Beginning annually in 

FY 2020, the Forest Service will issue a comprehensive review of the fire program that will detail the effectiveness 

of risk management strategies, beneficial ecological impacts of fire on the landscape, levels of exposure experienced 

by firefighters, effectiveness of fuel treatments, and efforts to modernize the wildland fire program and operational 

effectiveness. The agency will also report on the financial impacts of the fire season and the cost drivers generating 

those spending outcomes. This increased oversight will be accomplished through an improved large fire review 

process, annual fire budget reviews, and continued evolution of the agency’s approach to evaluating and 

understanding decision making on fire incidents through research-based principles and analytics.

As directed by Congress in the FY 2014 Consolidated Appropriations Act, a detailed table of actual and proposed 

estimated funding for fire operations, including aviation resources, is listed below:

Preparedness and Suppression Operations Costs (dollars in millions)

Preparedness FY 2018 Actual FY 2019

Estimate

FY 2020

Budget

Firefighters $594 $594 $600

Firefighting Equipment and Support 261 261 265

Aviation Contracts/Support 139 139 145

Agency Cost Pools 330 330 330

Total Preparedness1 $1,324 $1,324 $1,340

Suppression Operations2 FY 2018 Actual FY 2019

Estimate

FY 2020

Budget

Firefighters $621 $343 $338

Fire Suppression Operations and Logistics 1,706 281 253

Aviation Operations 368 245 235

Interagency (DOI) and State Fire Support 621 175 175

Burned Area Emergency Response 13 13 10

Agency Cost Pools 83 0 0

Total Suppression Operations3 $3,4124 $1,057 $1,0115

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.

3The Suppression Operations program ensures that fire management assets, such as large airtankers, helicopters, hot shot crews, and smoke 

jumpers are available to support extended attack and large fire support operations at fires on the NFS, other Federal, State, and private lands.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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4The total cost of suppression in FY 2018 was $2.6 billion. After appropriated funds for suppression were exhausted, the agency transferred 

$720.17 million from discretionary and mandatory accounts to cover suppression costs.

5Established funding level for Suppression Operations of $1.011 billion within the Wildfire Suppression Funding and Forest Management 

Activities Act of the Consolidated Appropriations Act, 2018 (P.L. 115–141). This funding level will remain constant until FY 2028.

Resource Summary FY 2018 to FY 2020 (Aviation fleet and personnel)

Resource

FY 2018 

Actual

FY 2019 

Estimate

FY 2020

Budget

Engines1 900 900 900

Heavy Equipment – Dozers, Tractor Plow Units, Tenders 210 210 210

Helicopters

Type 12 28 28 28

Type 23 34 34 34

Type 34 46 46 46

Airtankers

Next Generation Airtankers5 13 18 18

Scoopers 0 0 0

U.S. Coast Guard converted HC-130H airtankers6 1 0 0

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

1Refers to the suite of wheeled vehicles used to carry firefighters and water to the site of a fire.

2

Includes only agency owned/leased or exclusive use contracted assets. Type 1 are the heaviest class of helicopters.

3Medium-sized helicopters.

4

Includes only helicopters whose primary purpose is wildland fire response. Type 3 are the lightest class of helicopters.

5Numbers reflect maximum number of aircraft allowed under the exclusive use contracts.

6The program to transfer HC-130H airtankers from the U.S. Coast Guard and convert them to firefighting capable resources was terminated at 

the end of FY 2018.

Preparedness

Current Activities

Annually, there are more than 5,000 fires on National Forest System lands, and in FY 2018, Forest Service 

firefighters had an initial attack success rate – the percent of fires that were suppressed before they reached 300 

acres in size – of 97 percent.

The Preparedness program ensures that fire management assets, such as large airtankers, helicopters, hot shot crews, 

and smokejumpers, can support timely, risk-informed, and effective initial attack response operations on National 

Forest System, other Federal, State, and private lands. This program supports internal and external training and 

education; development and advancement of firefighting technology; and organizational learning.

Specifically Addressed Areas

The Forest Service wildland fire program has begun implementing a standard module configuration of ground-based 

firefighting resources. Standardized configurations for the number of people, pay grade, and skill level for each type 

of fire suppression asset provides for greater uniformity across individual teams, increases confidence in capability 

between resource teams, and creates a more predictable cost model for the Preparedness program. The agency will 

be developing a broader strategy for the financing and roll-out of this standardization effort across the next several 

fiscal years.

Standing up the Wildland Fire Investment Portfolio System (WFIPS). The WFIPS is a tool for evaluating where to 

invest firefighting capacity and geographic resource allocation under various wildland fire management objectives at

both national and regional scales. The information provided by the WFIPS will be utilized to inform decisions on 

tradeoffs between number, type, and location of firefighting resources and the likelihood of large fire occurrences.

Selected Examples of Recent Progress

Cost savings efforts: The agency has pursued, and continues to pursue, cost savings solutions across the 

Preparedness program to streamline operations and become a more efficient and agile organization. A major effort 

undertaken in FY 2018 that will continue into FY 2019 and beyond includes a shifting of contracted aviation 

resources from Preparedness-funded Exclusive Use (EU) contracting vehicles to Call-When-Needed (CWN) 

contracts that provide for increased flexibility in the Preparedness appropriation, leveraging Suppression funds 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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instead only when the aircraft are activated. Additionally, the Forest Service is engaging with other Federal and 

State partners to evaluate the status of current cost share agreements between the Federal government and States to 

determine if there are more equitable arrangements that could be utilized to ensure a fair sharing of the cost of 

suppression operations.

Aviation fleet size management: As part of a more standard structure for planning and budgeting and to ensure funds 

are spent most effectively, the agency has shifted the number of aviation assets that are on both EU and CWN 

aviation contracts. In FY 2018, the Forest Service worked to increase its financial accountability within the 

Preparedness account by reducing the number and minimizing the use of EU aircraft. In doing so, Preparedness 

account costs have decreased, from $147 million in FY 2017 to $109 million in FY 2018. FY 2018 was also the last 

year the agency supported the HC-130H program that was authorized within the 2014 National Defense 

Authorization Act. The agency determined that the HC-130H program was no longer necessary since private 

industry can fulfill the agency’s required large airtanker needs. As a result of these efforts, total aviation spending in 

the Preparedness account was substantially decreased, although this has resulted in increased expenditures in the 

Suppression account in order to surge additional aircraft on CWN contracts when demand for aviation resources 

peaks.

Suppression Operations

Current Activities

The Suppression Operations program is the primary funding source for wildland fire extended attack and large fire 

support operations. It protects forests and watersheds from the impacts of catastrophic fire, helping forests maintain 

their capacity to deliver benefits such as clean water, wildlife and fish habitat, recreational opportunities, and forest 

products. Just as importantly, the Suppression Operations program maintains the agency’s strong role of working 

with other Federal agencies, State, Tribal, and local government partners to protect life and property against wildfire 

and other natural disasters. The program helps restore and maintain resilient landscapes by managing unplanned 

wildfires and accomplishing resource management goals.

Risks to the public from wildland fires are increasing at an alarming rate due to year-round fire seasons, the 

increasing size of the wildland-urban interface (WUI), and increased fuel loads. Wildfire suppression operations in 

the WUI have become the norm over the last several decades due to the increasing wildland fire threats against 

public safety and human life, private property losses, damage to utilities and recreation facilities, and loss of timber

resources. While wildland fire is a natural process, the existing socio-political and environmental conditions do not 

always allow for wildland fire to play its natural role in maintaining healthy ecosystems. The Forest Service is 

working to increase the amount of active land management activities and is coordinating with the pubic on fire 

prevention to increase the resilience of forested ecosystems and adjacent communities to wildland fire.

Some fires create situations that require special efforts to prevent further problems after the fire. For example, loss 

of vegetation exposes soil to erosion; runoff may increase and cause flooding, sending sediment downstream to 

damage houses or fill reservoirs, and putting endangered species and community water supplies at risk. The Forest 

Service Burned Area Emergency Response (BAER) program, funded under Suppression Operations, addresses these 

situations with the goal of protecting life, property, water quality, and deteriorated ecosystems from further damage 

post-fire. The BAER program provides for immediate emergency post-fire response to manage unacceptable risks to 

people and resources triggered by the changed conditions to the landscape caused by the fire. The BAER program 

also manages access to ensure the safety of visitors and employees through hazard tree removal, posting of warning 

signs, and temporary gate and fence construction. All emergency stabilization actions must be taken within one year.

The amount of activity as measured by the activation of Suppression Operations resources continues to increase 

each year. FY 2018 was the most expensive fire season to date, complicated by early activity in California and 

extended periods at the highest National Preparedness Level 5, indicating full resource utilization. The Forest 

Service fully leveraged all available resources and, in partnership with other Federal, State, and local partners,

responded to over 5,015 fires on National Forest System lands.

Specifically Addressed Areas

The wildland fire environment is highly uncertain, particularly when confronted with large, long duration fire events 

where the suppression effort is either ineffective or excessively hazardous. The agency continues to evolve how it 

applies analytical systems to the decisional framework to answer questions related to how fire suppression resources 

are currently allocated, which suppression resources are effective, and whether practices currently employed by 

incident managers are efficient.
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The 2018 fire season saw over 7.7 million acres burned in wildland fires, with over 2.1 million of those acres 

occurring on National Forest System lands, the second highest since 2012. Due to the late fire seasons in the Pacific 

Northwest and California, the BAER program is supporting rehabilitation efforts in those regions in FY 2019.

The agency continually strives to improve its transparency and accountability regarding the costs of wildfire 

response operations. Due to the increasingly complex wildfire environment, other Federal, State, and local entities 

continue to rely on specialized Forest Service-contracted firefighting capabilities. The Forest Service will seek to 

establish appropriate cost-share agreements and pursue 100 percent cost recovery from Federal, State, and local 

entities to equitably balance these costs among users.

Selected Examples of Recent Progress

Real time decision support through applied science: The Forest Service’s Risk Management Assistance Team 

(RMAT) was initiated in FY 2017 and provided on-the-ground support to Incident Management Teams on large fire 

incidents in Regions 1, 3, and 4. In FY 2018, the RMAT efforts were expanded and resulted in 17 on-site teams 

providing real-time fire analytics support to operational decision makers. The RMAT is comprised of Forest Service 

wildland fire experts and researchers who provide real-time analysis, enhanced decision-support capacity, and 

expertise to improve risk management and the overall safety, effectiveness, and efficiency of the fire management 

response. The RMAT provides Incident Commanders and local line officers with alternative strategies for 

suppression response that better consider program spending and the inherent tradeoffs of exposure to fire 

responders, the public, risk to highly valued assets, and opportunities for using fire as a natural change agent and 

improving overall ecological conditions. The focus of RMAT in FY 2019 is to evolve this effort into a longer term, 

sustainable decision-support infrastructure, available both on-site and remotely, as a regularly available tool for 

Incident Commanders and their teams.

Improving risk management through “Life Work”: The Forest Service continues to emphasize the need to make 

risk-informed decisions in the face of complex and challenging fire response situations. In FY 2018, the agency 

continued the Life Work initiative, which tries to ensure that both responders and the public are more reliably 

protected and that sustaining communities while conserving the land is the agency’s primary objective. The Life 

Work initiative is an agency priority, placing an expectation on all line officers and leadership to use lessons learned 

and recognize common circumstances that result in unnecessary firefighter exposure and high-risk behavior.

Burned Area Emergency Response emergency stabilization activities: In FY 2018, 96 fires across seven Forest 

Service Regions resulted in landscape-level disturbances in need of immediate rehabilitation activities to prevent 

further degradation. A total of $20.9 million was spent in FY 2018 on actions to provide for public safety, stabilize 

the soil, and reinforce the structural integrity of infrastructure that is now at risk of post-fire degradation, including 

the seeding of over 6,400 acres, mulching of 1,700 acres, storm proofing of 1,800 miles of roads and trails, 

stabilization of 163 cultural resource sites and hazard mitigation at 152 locations.

Program Evaluations

The Office of Inspector General (OIG) issued a July 2017 “Audit of Forest Service’s Next Generation and Legacy 

Airtanker Contract Awards” in-progress report, which identified several issues regarding how the agency executes 

call-when-needed (CWN) aircraft contracts in support of fire suppression operations. The OIG determined that 

CWN contracts were not being executed by the designated agency contracting officer, that data was incorrectly 

entered into the Federal Procurement Data System (FPDS), and that obligations for flight rate costs were not 

properly budgeted for the projected utilization costs. In response to these findings, the agency formed the 

Transforming Incident Procurement Project team to ensure that procurement and contracting processes comply with 

the Federal Acquisition Regulations, revised agency reporting procedures for information entered into FPDS, and 

developed a strategy to commit funds in advance of CWN aircraft activation to properly budget for projected 

utilization costs. This process went into effect at the start of FY 2018.

A second in-progress OIG audit, “Forest Service Firefighting Cost Share Agreements with Non-Federal Entities”, 

(latest report from December 2015), evaluated controls surrounding the administration of cost-share agreements and 

whether fire suppression costs are equitably shared. The agency agreed with the OIG recommendations to reassess 

its fire protection responsibilities with the California fire management agency; to establish procedures to monitor the 

indirect cost rates used to reimburse local fire cooperators; and determine any unallowable overpayments and 

recover the amounts overpaid to the cooperators. The agency is currently working with the Department of the 

Interior, FEMA, and States to update cost share procedures for all stakeholders, streamline the negotiation and 

repayment process, and ensure an equitable distribution of costs and responsibility.
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Wildland Fire Management Primary Authorities

Title of Act or 

Program Summary of Authority Expiration Date (if applicable)

Programs 

Affected

Public Law 

Citation

U.S.C. 

Reference

Cooperative Firefighting 

Funds Retention

Any money collected from the 

States for fire suppression 

assistance rendered by the 

Forest Service on non-Federal 

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

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. 91-435 16 U.S.C. 579a

FLAME Act of 2009 Establishes a second discretionary 

appropriation account for 

wildfire suppression 

operations.

FLAME P.L. 111-88 43 USC 1701 

note; 43 

U.S.C. 

1748a

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 42 U.S.C. 

1856a-d;

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

Temporary Emergency 

Wildfire 

Suppression Act

This Act authorizes reciprocal 

agreements with foreign fire 

organizations for mutual aid in 

wildfire protection.

WFM P.L 100-428, 

P.L. 101-

11, P.L. 

112-74

42 U.S.C. 

1856m et 

seq.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Title of Act or 

Program Summary of Authority Expiration Date (if applicable)

Programs 

Affected

Public Law 

Citation

U.S.C. 

Reference

Wildfire Suppression 

Funding and Forest 

Management 

Activities Act

This Act adds a new adjustment to 

the discretionary spending 

limits for wildfire suppression.

WFM P.L. 115-141 43 U.S.C. 1701

note
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FLAME WILDFIRE SUPPRESSION RESERVE FUND

PROJECT STATEMENT

Project Statement (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec.

Chg 

Key SY

2020

Budget SY

Discretionary Appropriations:

FLAME a............................... -$147,835 - $342,000 - - - - - - -

Resc. And Trans. (Net)............. 489,835

Total Appropriation ........... 342,000 - 342,000 - - - - - - -

Transfers Out:

FLAME................................. -489,835 - -342,000 - - - - - - -

Total Available .................. -147,835 - - - - - - - - -

Total Obligations............ - - - - - - - - - -

a FLAME funding in 2017 was designated by Congress as being for an emergency requirement pursuant to section 251(b)(2)(A)(i) of the 

Balanced Budget and Emergency Deficit Control Act of 1985. FLAME funding in 2018 provided as Emergency Supplemental (P.L. 115-72), as 

shown on the Available Funds and Staff Years.

JUSTIFICATION

In 2010 through 2017, amounts in the FLAME Fund included the portion of the ten-year average of suppression 

obligations, adjusted for inflation, intended to support the most severe, complex, and threatening fires. The Secretary 

is authorized to permit transfers from this account to cover these extreme fire events. The Secretary may also 

transfer funds in the event the Forest Service has exhausted its suppression resources due to an active fire season. 

Since 2017, only emergency-designated funds have been appropriated to the FLAME account, with such funds 

solely available for repayment of fiscal year 2017 funds previously transferred from other accounts for wildfire 

suppression.

No funding is proposed in FY 2020.
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PERMANENT APPROPRIATIONS

LEAD-OFF TABULAR STATEMENT

Lead-Off Tabular Statement

Item Amount

2019 Annualized Continuing Resolution....................................................................................... $285,396,000 

Change in Appropriation ............................................................................................................... -16,818,000 

Budget Estimate, 2020................................................................................................................... 268,578,000

Budget Estimate, Current Law 2020 ............................................................................................. $268,578,000

Change Due to Proposed Legislation ............................................................................................ +193,000,000 

Net 2020 Request .......................................................................................................................... 461,578,000

Note: The 2020 proposed legislation includes the following: The program change for the Permanent Funds is due to the more complete cost recovery 

for infrastructure special uses permit processing, which would provide $3,000,000; cost recovery for minerals permitting, which would provide 

$60,000,000, and the Public Land Infrastructure Fund proposal, which would provide $130,000,000. Please note that FLREA was reauthorized for 

2 years and therefore $65 million is reflected in FY 2019, and that the Forest Botanical Products authority expires September 30, 2019 and an 

extension for FY 2020 is requested.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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PROJECT STATEMENT

Project Statement (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec. SY

2020

Budget SY

Mandatory Appropriations:

Brush Disposal.................................................... -16,789 113 15,319 74 8,000 74 - - 8,000 74

Timber Salvage Sales.......................................... -1,700 368 40,715 332 38,000 332 - - 38,000 332

Timber Sales Pipeline Restoration ...................... 5,221 61 3,469 44 5,000 44 - - 5,000 44

Forest Botanical Products ................................... 1,515 19 184 20 1,600 20 - - 1,600 20

Stewardship Contracting ..................................... 14,699 - 13,085 - 23,635 - - - 23,635 -

Recreation Fees, Forest Service .......................... 68,906 698 111,293 705 65,100 705 - - 65,100 705

Timber Purchaser Election Road Construction ... -27,724 - 492 - 2,000 1 - - 2,000 1

Operation & Maintenance of Forest Service 

Quarters .......................................................

9,179 26 -7,264 31 10,036 31 - - 10,036 31

Roads and Trails for States a............................... - - - - - - +15,000 - 15,000 -

Land Between the Lakes Management................ 5,460 13 2,415 10 5,000 10 - - 5,000 10

Midewin National Tallgrass Prairie Rental Fees . 340 1 -2,175 - 750 - - - 750 -

Quinault Special Management Area.................... 7 - - - - - - - - -

Restoration of Forest Lands and Improvements.. -142,716 159 -18,931 101 1,705 101 - - 1,705 101

Commercial Filming & Still Photography Land 

Use Fee Retention........................................

708 8 660 8 650 9 - - 650 9

Organizational Camps Program .......................... 705 7 514 9 500 9 - - 500 9

Cost Recovery (Land Uses) b.............................. 7,397 52 11,012 8 10,850 45 +193,000 - 203,850 45

Licensee Program Smokey Bear ......................... 286 - 440 - 440 - - - 440 -

Licensee Program Woodsy Owl.......................... 33 - 33 - 33 - - - 33 -

Forest Service Go Green Program 

(Conservation) .............................................

99 - 128 - 128 - - - 128 -

Conveyance of Administrative Sites................... 2,224 2 4,398 2 3,000 3 - - 3,000 3

Site-Specific Lands Act....................................... 1,693 1 24 - 1 - - - 1 -

Payments to States Funds c.................................. 67,591 62 232,550 43 108,968 43 -31,818 -43 77,150 -

Total Adjusted Approp .................................... -2,866 1,590 408,361 1,387 285,396 1,427 +176,182 -43 461,578 1,384

Rsc, Trns, Other (Net) ............................................ 302,952 - 42,672 - - - - - - -

Sequestration .......................................................... 7,801 - 110 - - - - - - -

Total Appropriation............................................. 307,887 1,590 451,143 1,387 285,396 1,427 +176,182 -43 461,578 1,384

Transfers In:

Fire Transfer Repayment..................................... - - 304,586 - - - - - - -

NRDA from DOI ................................................ 1,391 - - - - - - - - -

PASS Distribution (National Park Service)......... 243 - 232 - - - - - - -

Department of Interior......................................... - - 2,618 - - - - - - -

Subtotal ........................................................... 1,634 - 307,436 - - - - - - -

Transfers Out:

Fire Transfer ....................................................... -304,586 - -350,108 - - - - - - -

Subtotal ........................................................... -304,586 - -350,108 - - - - - - -

Adjustment for Change in Uncollected Payments... -93 - - - - - - - - -

Sequestration .......................................................... -7,801 - -110 - - - - - - -

Recoveries, Other (Net).......................................... 5,450 - 6,997 - 5,564 - - - 5,564 -

Bal. Available, SOY............................................... 779,369 - 406,279 - 266,463 - -70,774 - 195,689

Total Available ................................................... 781,860 1,590 821,637 1,387 557,423 1,427 +105,408 -43 662,831 1,384

Bal. Available, EOY............................................... -406,279 - -266,463 - -195,689 +74,858 - -120,831

Total Obligations ................................................ 375,581 1,590 555,174 1,387 361,734 1,427 +180,266 -43 542,000 1,384

a

In FY 2020 the budget proposes to retain receipts collected in the Roads and Trails for States fund. In previous years, these funds were 

deferred to the Treasury.

b Cost Recovery (Land Uses) legislative proposals allocate $60,000 for minerals and $3,000 for special use screening proposals.

c FY 2019 and FY 2020 estimates for Payments to States Funds do not include supplemental payments from the Treasury.

Note: Negative total adjusted appropriations are the result of the sum of sequestrations and transfers exceeding sum appropriations and receipts, 

and are not a true indicator of the account balance.
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STATUS OF PROGRAMS

Brush Disposal

Program Overview

This program provides for the disposal of un-merchantable 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.

Timber Salvage Sales

Program Overview

The Timber Salvage Sales program’s 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 obtaining Forest Service 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.

Timber Sales Pipeline Restoration

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 their outdoor experience. These activities are aligned with the agency’s integrated 

watershed improvement goals, and ensure forests and grasslands are conserved, restored, and made more 

resilient.

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.
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Forest Botanical Products

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, and 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.

Stewardship Contracting

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) and the Consolidated 

Appropriations Act, 2018; Pub. L. 115-141; 132 Stat. 348. Division O, Title II, Sections 204-207 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. The authority was amended 

again by the Consolidated Appropriations Act of 2018, Division O, Title II, Sections 204-207. Section 207 extends 

the maximum duration of stewardship contracts and agreements in areas where the majority of Federal lands are in 
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Fire Regime Groups I, II, and III up to 20 years and allows the agency to give a procurement preference for 

innovative use of forest products. In addition, Section 204 gives the agency greater flexibility to manage 

appropriated funds needed to cover potential contract cancellation costs.

Recreation Fees, Forest Service

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 – The Forest Service collects 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 

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, extended through September 

30, 2019, pursuant to P.L. 115-56, which included both the Continuing Appropriations Act, 2018 and the 

Supplemental Appropriations for Disaster Relief Requirements Act, 2017. Authority under the Federal Lands 

Recreation Enhancement Act expires on September 30, 2020. Legislative action is required to enable the Forest 

Service to continue to collect and reinvest approximately $65 million in recreation fees beyond September 30, 2019.
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Timber Purchaser Election Road Construction

Program Overview

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 roadwork 

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 – This program supports activities to improve forest health through 

vegetative treatments in timber stands at high risk of fire due to insect, disease, and drought; road work in 

support of vegetative treatments to support forest health objectives; and provides 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.

Forest Service Quarters Operation and Maintenance

Program Overview

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.

Roads and Trails for States

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 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.
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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, 2018 (P.L. 115-141). This Act directed “That funds becoming available in FY 

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.”

Land Between the Lakes Management

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 campsites 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.

Authorities

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.

Midewin National Tallgrass Prairie Rental Fees

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 

enables 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.

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.
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Midewin National Tallgrass Prairie Restoration

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. 

The Midewin National Tallgrass Prairie Restoration fund includes funding from the agricultural rental fund that 

funds prairie restoration as well as the salvage fund.

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.

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.

Quinault Special Management Area Fund

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 (QSMA) 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. Specifically, the lands are defined under Section 2 of the aforementioned 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.

Restoration of Forest Lands & Improvement

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.

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.
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Commercial Filming & Photography Land Use Fee

Program Overview

Fees retained by the Forest Service in this fund are used to manage and respond to film/photo use requests on 

NFS lands 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.

Organizational Camp Program

Program Overview

Organizational camp fees are generally 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, performing oversight, inspection, and monitoring of existing special use 

authorizations to ensure compliance with terms and conditions, interpretive programs, environmental analysis 

and restoration activities, and similar purposes. The Forest Service administers approximately 300 permits for 

organizational camps.

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 facility’s appraised value.

 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 the organizational camp’s 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.

Cost Recovery (Land Use)

Program Overview

Each year, the Forest Service processes thousands of applications for the use and occupancy of National Forest 

System (NFS) lands, and administers tens of thousands of 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 than government uses; commercial and private requests to 

assure compliance with applicable laws, regulations, land use plans; and the technical and financial capability of 

applicants to conduct activities 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 
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authorizations with appropriate terms and conditions that ensure the protection of public health and safety, and 

resource protection measures; and 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 a written rationale and evidence 

that 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.

Categories of projects included in this fund are:

Cost Recovery Lands Major Projects - All applicants proposing recreation and non-recreation (land) uses that 

require more than 50 hours of agency time to process or monitor are charged a fee. 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.

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).

Licensee Program Smokey Bear

Program Overview

The Smokey Bear program supports national initiatives, programs, and products that help increase public 

awareness about 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 for special projects, such as 

Smokey Bear birthday celebrations, that support the Smokey Bear wildfire prevention message.

Authorities

P.L. 82-359, CH. 327, 16 U.S.C. 580 p-2), (18 U.S.C. 711), (P.L. 93-318). 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.

Licensee Program Woodsy Owl

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 
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Conservation Education program identifies funding for the Woodsy Owl conservation program initiative to 

develop products, manage the licensing program, and 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 funds was used to continue promoting Woodsy’s partnership 

with the Department of Health and Human Services’ Office of Head Start. This will cover the cost of materials 

and supplies that will be sent to Head Start classrooms upon request.

Authorities

(16 U.S.C. 580 p-1) (formerly classified as 31 U.S.C. 488a, 488b-3, 488b-6) (18 U.S.C. 711a). 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.

Forest Service Go Green Program (Conservation)

Program Overview

The Forest Service prompted 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 

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. In FY 

2020, the Forest Service anticipates that its Go Green program will continue to grow, given increasing 

awareness through the Sustainable Operations peer learning series. Every dollar collected under this authority 

offsets funding from other programs.

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 

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.

Conveyance of Administrative Rights

Program Overview

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, including providing local communities with an additional tax base and opportunities for 

redevelopment to align with community plans and economic stimulus strategies.

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, 2023.
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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.

Agriculture Improvement Act, 2018 (P.L. 115-334, Title VIII, Section 8504). This act extended the 

authorization of the FSFREA authority through September 30, 2023.

Revenues received from the sale of land or structures are deposited into the Sisk Act Fund and are available without 

further appropriation.

Site Specific Lands Act

Program Overview

This program enables the collection of receipts from the sale of National Forest System lands 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 their functions; 

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.
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PAYMENTS TO STATES

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 Act (SRS Act) Payments for States 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, most recently reauthorized by P.L. 115-141 on March 23, 2018.

The Secure Rural Schools and Community Self-Determination Act of 2000, as amended (16 U.S.C. Ch. 90) 

(SRS Act) directs that Title I funds be used to fund county schools and roads. Title III may be used on county 

projects, including (1) to carry out activities under the Firewise Communities program (2) to reimburse the 

participating county for search and rescue and other emergency services, including firefighting and law 

enforcement patrols (3) to cover training costs and equipment purchases directly related to the emergency 

services described in paragraph (2); and (4) to develop and carry out community wildfire protection plans. 

USDA Forest Service processed a fiscal year 2017 receipts payment to each State on or about May 7, 2018. 

Information about the fiscal year 2017 receipts payments can be found at https://www.fs.usda.gov/pts/.

Without reauthorization of the SRS Act, the Forest Service reverts to making payments to States under the Act of 

May 23, 1908 Act (1908 Act), commonly called 25 percent payments. The Forest Service processed a 2016 receipt 

year payment to each State in March of 2017, the program has a one-year lag in timing of payments. The 1908 Act 

payments distributed in 2018, for the 2017 receipt year, totaled $57.4 million, and the 1908 Act directs that States 

shall use these payments for schools and roads.

Payments to Minnesota Counties

This Authority derives from the Thye-Blatnik 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. 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. A new appraisal is in process and is expected to be 

complete with values reported to the Counties in January of 2019. A post-sequestration reduction payment for 2017 

of over $5.7 million was transmitted to the State of Minnesota beginning in February of 2018 (the program has a 

one-year lag in timing of payments).

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 or roads. A post-sequestration reduction payment for 2017 of approximately $23.4 million 

was transmitted to eligible States in March of 2018 (the program has a one-year lag in timing of payments).

Secure Payments for State, Title II

The SRS Act provides choices to counties for funding resource improvement projects on the national forest where 

the county is located. The deadline to initiate SRS Title II projects is September 30, 2020. The deadline for the 

Secretary to obligate Title II funds is September 30, 2021.

Title II funds are used by the Forest Service to carry out projects in eligible counties 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. Title II funds are used for projects such as active forest management, road maintenance, trail maintenance, 

invasive weed control, restoration of wildlife habitat, streams and watersheds, often providing opportunities to 

promote youth and volunteer engagement in our national forests and grasslands.
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Secure Rural School Resource Advisory Committees

The SRS program was evaluated by the USDA Office of Inspector General beginning in 2015, with the final report 

issued in August of 2017. This evaluation found that of Resource Advisory Committees (RACs) nationwide, 52 of 

the then established 117 RACs (44 percent) did not have the required number of members to reach a quorum and 

therefore were unable to review and recommend Title II projects. As of December 2018, 65 of the active 114 RACs

nationwide do not have a quorum due to membership terms expiring naturally due to the lapse in SRS authorization 

earlier in FY 2018, as well as expiration of the national RAC charter in June 2018, which put all RAC recruitment 

and outreach on hold. The RAC charter was renewed, for two years, in December of 2018 and recruitment of new 

RAC members is ongoing.

The USDA Forest Service is taking steps to reduce timeframes for vetting requests, provide additional outreach 

resources and training to all SRS RAC points of contact, and provide additional one-on-one consultation to RACs as 

needed. Section 8702 of the Agriculture Improvement Act of 2018 (P.L. 115-334) modified the requirements for 

RACs to reach a quorum by lowering the members required to reach a quorum to not fewer than nine. In addition 

the Act directed the Forest Service to conduct a pilot program for Regional Foresters to appoint RAC members in 

Montana and Arizona.

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 of each year, prior to P.L. 114-10. Under the most recent reauthorization of the SRS Act, P.L. 115-141, elections 

are locked in. Prior to P.L. 115-141, 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 

would then 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 the FY 2017 receipt year, 2018 payment year, the remaining funds, per 16 U.S.C. 7112(d)(3)(B)(ii), totaled 

$194,680. 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).
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TRUST FUNDS

LEAD-OFF TABULAR STATEMENT

Lead-Off Tabular Statement

Item Amount

2019 Annualized Continuing Resolution....................................................................................... $92,000,000 

Change in Appropriation ............................................................................................................... 5,000,000 

Budget Estimate, 2020................................................................................................................... 97,000,000 

PROJECT STATEMENT

Project Statement (dollars in thousands, staff years(SY))

Item 2017 

Actual SY

2018 

Actual SY

2019 

Estimate SY

Inc. or 

Dec. SY

2020 

Budget SY

Mandatory Appropriations:

Cooperative Work - KnutsonVandenberg............................... 73,115 543 187,752 360 39,184 360 +2,582 - 41,766 360

Cooperative Work – Other.............. 37,163 210 39,182 53 30,142 201 +1,380 - 31,522 201

Reforestation Trust Fund ................ 30,000 141 27,246 128 22,606 127 +1,035 - 23,641 127

Land Between the Lakes Trust Fund 92 - 84 - 68 - +3 - 71 -

Total Adjusted Approp ................ 140,370 894 254,264 541 92,000 688 +5,000 - 97,000 688

Sequestration...................................... -4,413 - -290 - - - - - - -

Total Appropriation ........................ 135,957 894 253,974 541 92,000 688 +5,000 - 97,000 688

Adjustment for Change in Uncollected 

Payments...................................... -510 - 10 - - - - - - -

Sequestration...................................... 4,413 - 290 - - - - - - -

Recoveries, Other (Net)...................... 8,152 - 4,589 - 4,448 - - - 4,448 -

Bal. Available, SOY........................... 339,828 - 184,321 - 81,498 - -33,552 - 47,946

Total Available ............................... 487,840 894 443,184 541 177,946 688 -28,552 - 149,394 688

Bal. Available, EOY .......................... -184,321 - -81,498 - -47,946 +13,552 - -34,394

Total Obligations ............................ 303,519 894 361,686 541 130,000 688 -15,000 - 115,000 688
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STATUS OF PROGRAMS

Cooperative Work - Knutson-Vandenberg

Program Overview

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 landline 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.”

Cooperative Work – Other

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 longterm 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 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.
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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.

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.

Land Between the Lakes

Program Overview

The Land Between the Lakes Protection Act (LBL), called for 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 interestbearing 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.

Authorities

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.

Reforestation Trust Fund

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 for 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 
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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 resilience 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.
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DISCRETIONARY LEGISLATIVE PROPOSALS

FEDERAL LANDS RECREATION ENHANCEMENT ACT REAUTHORIZATION (FLREA) -

REAUTHORIZATION

The budget proposes to reauthorize the Federal Lands Recreation Enhancement Act, which expires in September 

2020. As a precaution, the budget also proposes appropriations language to provide a 2-year extension of FLREA 

through September 2022. The revenues collected by the Department of the Interior from these recreation fees—$406 

million in 2018—are an important source of funding to enhance the visitor experience through maintenance, 

operations, and improvements to recreation facilities on public lands. The Triennial Report to Congress on 

Implementation of FLREA, published in May 2012, contained many “Considerations for the Future of the 

Program”, which set the foundation for the proposal.

Proposed FLREA Collections (dollars in thousands)

Item 2020 2021 2022 10 Year Total

Budget Authority............................ -$65,000 -$65,000 -$65,000 -$650,000

Outlays ........................................... -$65,000 -$65,000 -$65,000 -$650,000

FOREST MANAGEMENT

Dense undergrowth has amassed across much of the public lands, providing fuel for catastrophic wildfires and 

worsening insect infestation, invasive species, and disease. These conditions adversely impact the Nation’s forests, 

rangelands and watersheds, and contribute to increased wildfire risk to surrounding communities. Active 

management of timber and vegetation is necessary to combat these threats, save lives, and protect property. The 

Administration proposes a package of forest management legislative reforms coupled with a strong 2020 budget to 

kick start a solution to this serious risk. The proposed legislation would provide categorical exclusions on national 

forest lands for active forest management, including the ability to harvest dead, dying, or damaged trees as well as 

proactive fuels management, including the use of fuel breaks. These changes are much needed to help reduce fire 

risk, improve forest health, minimize after fire impacts, prevent re-burn of fire impacted areas, and improve safety 

for wildland firefighters.

GRAZING PERMITS- FLPMA AMENDMENT

The proposal would provide an amendment to the Federal Land Policy and Management Act (FLPMA) to correct 

the National Defense Appropriations Act (NDAA) amendment to FLPMA Section 402. For this section only, all 

National Forest System lands would be included so that those lands in the eastern States and National Grasslands are 

covered by the NDAA and are treated equally in National Environmental Protection Act (NEPA) analysis of grazing 

permits.

WILD AND SCENIC RIVERS ACT - AMENDMENT

The Wild and Scenic Rivers Act requires that comprehensive river management plans be prepared within three years 

following a Wild and Scenic River designation to address “resource protection, development of lands and facilities, 

user capacities, and other management practices necessary or desirable to achieve for purposes of this Act.” This 

proposal would change the Wild and Scenic Rivers Act to state that the Secretary of Agriculture shall not be 

considered to be in violation of Section 3(d)(1) of the Wild and Scenic Rivers Act solely because more than three 

years have passed since a river was designated “wild and scenic,” and a comprehensive river management plan has 

not yet been completed. If more than three years have passed since designation without the completion of a 

comprehensive river management plan, the proposal would require that a plan must be completed or appropriately 

updated no later than during the next forest plan revision process.

FOREST BOTANICAL PRODUCTS - REAUTHORIZATION

The Forest Service is proposing to extend its existing authority for one year, to September 30, 2020. The 

Consolidated Appropriations Act of 2014 (P.L. 113-76) extended this authority beyond a pilot program through 

September 30, 2019. This legislation is necessary to reauthorize the Program for charging and retaining fees for the 

harvest of forest botanical products. The objective of the program is 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.
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Proposed Forest Botanical Collections (dollars in thousands)

Item 2020 2021 2022 10 Year Total

Budget Authority............................ -$1,600 -$1,600 -$1,600 -$16,000

Outlays ........................................... -$1,600 -$1,600 -$1,600 -$16,000

LAND USES/INFRASTRUCTURE SPECIAL USE PROCESSING- FULL COST RECOVERY

The Forest Service is proposing to change the agency’s cost recovery authority to allow the collection of funds for 

the full cost of processing a land use-related special use proposal. The amendment would authorize the agency to 

collect fees at the very beginning of the screening process, as opposed to waiting until an application has been fully 

screened and accepted for consideration. Under the current cost recovery law, only once a proposal becomes an 

application can the agency begin recovering costs to process it. Currently, the agency collects around $7 million per 

year, but screening can be very costly depending on the complexity of the project. By recovering costs earlier, as the 

Bureau of Land Management (BLM) does, the Forest Service would be able to recoup an estimated additional $1–3 

million annually, leading to improved efficiencies of application processing by an estimated 10-20 percent. This 

proposal would also enable the agency to reduce the backlog by 1,000 authorizations, decreasing the number of unvetted proposals from proponents. Overall, this proposal would enable the agency to provide better customer service 

to entities hoping to establish infrastructure on Forest Service lands. Representatives from private industry have 

expressed support for this proposal.

Proposed Land Uses/Infrastructure Collections (dollars in thousands)

Item 2020 2021 2022 10 Year Total

Budget Authority............................ -$7,000 -$7,000 -$7,000 -$70,000

Estimated Additional Collections... -$3,000 -$3,000 -$3,000 -$30,000

Outlays ........................................... -$10,000 -$10,000 -$10,000 -$3,000

MINERAL RECEIPTS FROM NATIONAL FOREST SYSTEM LANDS

The Forest Service manages a capital asset portfolio with over $5 billion in deferred maintenance, and an estimated 

replacement value of $119 billion. This infrastructure includes 40,000 buildings, 4,700 water systems, 4,700 

wastewater systems, almost 30,000 recreation sites, more than 490 Forest Service-owned dams, over 370,000 miles 

of road, 6,200 road bridges, and 158,000 miles of trails. To address deferred maintenance needs, the Department of 

the Interior FY 2020 Budget requests $6.5 billion over 5 years for a Public Lands Infrastructure Fund (PLIF). The 

Fund will be supported by the deposit of 50 percent of all federal energy development revenue that would otherwise 

be credited or deposited as miscellaneous receipts to the Treasury over the 2020-2024 period, subject to an annual 

limit of $1.3 billion. The proposed allocation for infrastructure maintenance and improvements on public lands is 70 

percent for national parks, 10 percent for national forests, 10 percent for wildlife refuges, five percent for Bureau of 

Indian Education schools, and five percent for lands managed by the Bureau of Land Management. Interior and 

Agriculture would prioritize projects, monitor implementation and measure results. This investment will 

significantly improve many of America's most visible, visited, and treasured places. 

COMMUNICATIONS SITE PROGRAM- ADMINISTRATIVE FEE RETENTION

The Agriculture Improvement Act, 2018 authorizes the Forest Service to establish, collect, and retain a new 

administrative fee to cover costs incurred by the Forest Service to manage communication site uses on National 

Forest System (NFS) lands. The agency seeks authority to retain and spend up to $4.5 million annually in land use 

fees collected for communication sites on National Forest System lands to better manage the growing use of Forest 

Service lands for communications facilities. This proposal supports the Administration’s priority of increasing 

broadband access to rural communities, in accordance with Executive Order 13616, “Accelerating Broadband 

Infrastructure Deployment”; USDA’s goal to “Assist Rural Communities to Create Prosperity”; and USDA Rural 

Development’s effort to increase broadband access for rural communities. It would also support the Federal 

Interagency Broadband Opportunity Council’s recommendation to promote increased broadband deployment 

through expanded access to Federal assets, helping service providers obtain the permits necessary to build out 

broadband networks on Federal lands. This proposal would allow the Forest Service to better serve its customers, 

emergency services, and visitors to National Forest System lands by providing expanded telecommunications 

capabilities, including cellular coverage and broadband access, to rural communities. These expanded capabilities 
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would benefit rural communities and areas where little or no capability currently exists, enable greater coordination 

in emergency response situations, and increase overall safety for visitors, agency staff, and first responders.

Projection of Change in Revenue to Treasury under Legislative Proposal (dollars in thousands)

2016 2017 2018 2019 2020 2021 2022 2023 2024

Net to 

Treasury 

under 

Current 

Law

$10,800 $10,900 $10,800 $10,800 $10,800 $10,800 $10,800 $10,800 $10,800

Estimated 

additional 

receipts 

with 

proposal

- - - - 6,300 6,300 6,300 6,300 6,300

Receipts 

retained by 

Forest 

Service 

under 

proposal

- - - - 4,500 4,500 4,500 4,500 4,500

Net to 

Treasury 

with 

proposal

10,800 10,900 10,800 10,800 12,600 12,600 12,600 12,600 12,600

Change in 

revenue to 

Treasury

- - - - +1,800 +1,800 +1,800 +1,800 +1,800

Proposed Communications Sites Collections (dollars in thousands)

Item 2020 2021 2022 10 Year Total

Budget Authority............................ -$4,500 -$4,500 -$4,500 -$45,000

Outlays ........................................... -$4.500 -$4.500 -$4.500 -$45,000
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MANDATORY LEGISLATIVE PROPOSALS

USE OF MINERALS RECEIPTS FROM NATIONAL FOREST SYSTEM LANDS TO ACCELERATE MINERALS 

PERMITTING-COST RECOVERY 

(a) IN GENERAL.—Subject to subsections (b) and (c), the Secretary of Agriculture (in this section “the 

Secretary”) shall deposit into a special account established in the Treasury all fees collected by the Secretary to 

recover the costs of processing applications for, and monitoring compliance with, locatable mineral plans of 

operation, surface use plans of operation, and other written Forest Service authorizations relating to the disposal of 

locatable and leasable minerals on National Forest System lands.

 (b) USE OF DEPOSITED AMOUNTS.—Amounts deposited pursuant to subsection (a) shall be available 

to the Secretary, without further appropriation, until expended to cover costs for the purposes for which the fees 

were collected.(c) LIMITATION.—The Secretary may deposit a total amount of not more than $60,000,000 

annually into the special account under subsection (a).

COST RECOVERY FOR SCREENING PROPOSALS

Section 331 of the Department of the Interior and Related Agencies Appropriations Act, 2000 (as contained 

in division B, section 1000(a)(3) of P. L. 106-113 (113 Stat. 1501A-196; 16 U.S.C. 497e)) is amended—

(1) by redesignating subsections (b) through (f) as subsections (c) through (g);

(2) by inserting after subsection (a), new subsection (b) as follows:

“(b) COLLECTION OF FEES FOR SCREENING PROPOSALS.—In addition to other authorities 

available to recover costs, the Secretary of Agriculture is authorized to collect fees to recover the costs of screening 

proposals for authorizations to use and occupy National Forest System lands under the laws identified in subsection 

(c) and under section 1(b) of the Act of May 26, 2000 (16 U.S.C. 460l-6d(b)).”;

(3) in subsection (c) as redesignated—

(A) by striking “Subject to subsections (a) through (f), each” and inserting “Each”; and

(B) by inserting “screening proposals for,” after “costs of”;

(4) in subsection (d) as redesignated—

(A) by inserting “screening of proposals for” after “by the Forest Service for the”; and

(B) by striking “applications for special use authorizations and for monitoring activities undertaken in 

connection with such authorizations” and inserting “applications for, and monitoring of compliance with 

authorizations to use and occupy National Forest System lands”;

(5) in subsection (f) as redesignated, by striking “the term ‘authorizations’ means special use 

authorizations” and inserting “the term `authorization' means a special use authorization”; and

(6) by striking subsection (g) as redesignated.

ROADS AND TRAILS FUND

Amounts deposited during fiscal year 2020 in the roads and trails for States fund provided for in the fourteenth 

paragraph under the heading ‘‘FOREST SERVICE’’ of the Act of March 4, 1913 (37 Stat. 843; 16 U.S.C. 501), 

shall be used by the Secretary of Agriculture, without regard to the State in which the amounts were derived, to 

repair or reconstruct roads, bridges, and trails on National Forest System lands or to carry out and administer 

projects to improve forest health conditions, which may include the repair or reconstruction of roads, bridges, and 

trails on National Forest System lands in the wildland-community interface where there is an abnormally high risk 

of fire.

Change Description

The first change authorizes the Forest Service to retain and spend new cost recovery fees it has the authority to 

collect (but currently does not collect because it currently cannot retain the fees) for locatable mineral plans of 
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operations, and surface use plans of operations for oil and gas leases, and other written Forest Service authorizations 

relating to the disposal of locatable and leasable (but not saleable) minerals on all National Forest System lands.

The second change would enable the Forest Service to change the agency’s cost recovery authority to allow the 

collection of funds for the full cost of processing a land use-related special use proposal. The amendment would 

authorize the agency to collect fees at the very beginning of the screening process, as opposed to waiting until an 

application has been fully screened and accepted for consideration.

The third change allows the Secretary of Agriculture to use road and trails funds rather than deferring them to the 

Treasury.
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AGENCY-WIDE PERFORMANCE

SUMMARY OF PERFORMANCE

The Forest Service was established February 1, 1905 within the Department of Agriculture. The agency was given a 

unique mission: to sustain healthy, diverse, and productive forests and grasslands for present and future generations. 

The Forest Service is composed of the following major program areas: Business Operations, National Forest 

System, State & Private Forestry, Research & Development and International Programs. The Forest Service 

contributes to Goal 6 of the Department’s Strategic Goals. The following table summarizes the results for the 

Departmental Key Performance Indicators (KPIs) for which the Forest Service is responsible.

Key Performance Indicators

KPI 2017 

Actual

2018

Actual

2018 

Target

2018 

Result a

2019 

Target

2020 

Target

Percent of customers satisfied with 

recreation facilities, services, and 

setting on National Forests..................... 95 95 95 Met 95 95

Percent of watersheds in properly 

functioning condition b........................... 53 53 53 Met N/A N/A

Timber volume sold (billion board feet) ...... 2.9 3.2 3.4 Met 3.7 3.7

Annual acreage of NFS lands where final 

treatment effectively mitigates wildfire 

risk (million acres, annually) ................. 0.74 1.036 1.1 Met 1.1 1.1

Annual acreage treated to reduce or 

maintain fuel conditions on NFS and 

non-Federal lands (million acres, 

annually)................................................ 2.78 3.4 3.0 Met 3.4 3.4 c

a Target is considered met if it falls within a 10 percent range.

b This measure was retired at the start of FY 2019.

c This target for volume of timber sold supports the target of 3.8 bbf of timber volume offered that was established in the Executive Order 

“Promoting Active Management of America’s Forests, Rangelands, and other Federal Lands to Improve Conditions and Reduce Wildfire Risk,” 

which was issued on December 21, 2018.

SELECTED PAST ACCOMPLISHMENTS TOWARD THE ACHIEVEMENT OF THE KPI OUTCOMES

In FY 2018, the agency met our 95 percent visitor satisfaction target, reflecting the result of our continued efforts to 

provide access to quality landscapes, offer a variety of recreation opportunities and settings, and maintain recreation 

facilities to acceptable standards. A milestone for customer service was the October 1, 2018 launch of the new 

Recreation.gov to the public. The website services include reservation and trip planning for 100,000 individual sites 

and activities and 3,500 recreation areas managed by seven Federal agencies. Improved call center services include 

extended hours seven days a week.

The quantity of timber sold in FY 2018, 3.187 billion board feet, is a 10 percent increase over FY 2017 and an 

amount last reached in 1997. This achievement was made possible by use of tools authorized or amended in the 

2014 Farm Bill and the Consolidated Appropriations Act, 2018 (P.L. 115–141), including the Good Neighbor 

Authority, National Environmental Policy Act categorical exclusions related to insect and disease, the Agriculture 

Conservation Experienced Services Program, and the expanded stewardship contracting authority.

The agency met both of its goals for fuel treatments and increased the amount of final treatments by 40 percent and 

of new treatments by 23 percent compared to 2017 acres, meeting or exceeding the 2018 target. This was made 

possible by ongoing work with partners to define priority landscapes, such as those within the wildland-urban 

interface and high-risk areas, and implementing treatments using the Good Neighbor Authority with our state 

partners.

SELECTED ACCOMPLISHMENTS EXPECTED AT THE 2020 PROPOSED RESOURCE LEVEL

The Forest Service will maintain our high visitor satisfaction percent by continuing to improve recreation and 

permitting tools, building on pilot programs that will be tested in 2019 to prepare the Forest Service to expand these 

online services to more locations.
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The Forest Service will increase the timber volume sold to 3.7 billion board feet. To do this, we will leverage every 

tool available, including maximizing the use of our new 2018 Farm Bill authorities; and improving processes for 

conducting environmental analysis and decision making to increase our efficiency and reduce our costs; and 

continuing to use science-based tools for decision making.

The agency will build upon its 2018 success and increase the targeted number of acres treated to 3.4 million to 

implement hazardous fuels treatments in high risk areas by using the best available science, Good Neighbor 

Authority, and partnerships with the states to deliver results across boundaries.

FOREST SERVICE STRATEGIC GOALS PERFORMANCE OVERVIEW

The Forest Service Strategic Plan details the goals and objectives for the major functions of the organization that 

allow for sustaining the health, diversity, and productivity of America’s forests and grasslands for present and future 

generations. Annual performance data provide a picture of what and how our programs are doing in relation to these 

goals and outcomes. Program and regional reviews help us to understand “why” or “what” about them is working.

A number of processes and controls ensure data quality and validity of performance data. Performance measures 

have a Data Quality Assurance Plan that establishes data stewardship roles and responsibilities at various levels in 

the agency. For all data, field staff and managers are responsible for the completeness and quality of the data, and 

regional leadership certify that procedures were followed to ensure validity and reliability of data, or document data 

that do not meet the standard. To establish uniformity in staff knowledge about these procedures, the agency 

recommends data stewardship training be taken for each of these roles every year.

The Forest Service is committed to continuous learning and is addressing improvements identified in a FY 2017 

internal review of performance management and reporting. In FY 2018, Forest Service conducted discovery 

research to inform plans for future investments in evidence-based decision making. This work supports the overall 

Department approach to learning and learning agendas, and will help the agency and key stakeholders to develop 

evidence portfolios that measure progress and can demonstrate impact.

Following are (1) highlights of recent accomplishments and evidence for each Forest Service strategic goal, and (2) 

a table presenting key agency and Government Performance and Results Act performance measures.

Goal 1 – Sustain Our Nation’s Forests and Grasslands

The agency maintains high levels of accomplishment for key integrated restoration and management activities to 

sustain national forests and grasslands. Managers and owners of forests across the Nation face urgent challenges, 

among them catastrophic wildfires, invasive species, drought, and epidemics of forest insects and disease. Of 

particular concern are longer fire seasons and the rising frequency of large and severe of wildfires, along with the 

expanding risk to communities, natural resources, and the safety of firefighters. Successful management requires 

working across landscape ownership boundaries in collaboration with partners and using the best available science 

to guide our management decisions. In 2018, the Forest Service launched the Shared Stewardship initiative to bring 

States and other stakeholders together to prioritize cross-boundary investments in management and monitoring to 

improve forest conditions. We are engaging with States, fire associations, and non-governmental organizations in 

landscape level work to reduce wildfire risk. We are also increasing our work with States by maximizing use of 

tools authorized or amended in the Consolidated Appropriations Act, 2018 (P.L. 115–141), including Good 

Neighbor Authority, which allows States to restore watersheds and manage forests on National Forest System lands 

via agreements or contracts. As of September 2018, 188 Good Neighbor agreements were established in 37 states.

Also working with States, the Forest Service designated 74.5 million acres across the National Forest System as 

experiencing, or at risk of experiencing, insect and disease infestations. Within these designated areas, 144 projects 

have been implemented under the 2014 Farm Bill Insect and Disease provisions. Forest Health Protection conducts 

forest surveys with State and local partners across all lands covering over 500 million acres annually. These aerial 

and ground surveys monitor and detect the status and movement of forest pests and diseases to characterize forest 

health condition and help guide forest treatment decisions. In FY 2018 the acreage treated to reduce or maintain fuel 

conditions and improve forest health on National Forest System and non-Federal lands was 3.4 million acres, 

meeting our annual target. These projects include hazardous fuels reduction, vegetation thinning, and prescribed 

burning.

An example of the impact of these treatments is the Mountain Home All Hands - All Lands project, a partnership 

with Albany County, Wyoming to create cross-boundary defensible space through hazardous fuels treatments on 

National Forest System lands and private landowner grants. Beetle kill affected this area significantly in the early 

2000’s and proactive hazardous fuels treatments in the area included hundreds of acres of thinning and prescribed 
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burning to reduce wildfire risk. On June 10, 2018 the Badger Creek Fire started on the Medicine Bow-Routt 

National Forest two miles northwest of the community of Mountain Home, Wyoming. While evacuating 400 homes, 

firefighters utilized the fuel breaks created in the project area as an anchor point to engage the wildfire safely. 

Despite conditions driving flame lengths as high as 200 feet, the defensible space of the fuel breaks allowed ground 

resources to assess structures and direct effective retardant drops from air tankers. Fire behavior was quickly 

moderated, and contained. The interagency efforts of this project resulted in the successful protection of this 

community and others.

Forest Service tree and plant nurseries and their seedbanks are critical to the agency’s ability to address reforestation 

and revegetation needs on national forests and grasslands. With 88 percent of the agency tree planting needs due to 

wildland fire damage, the agency plans and collects the seeds in advance of fires that might severely impact local 

seed sources. This ensures the agency has the right kinds of seeds (species) from the right geographic areas to grow 

seedlings to respond to these fires. In FY 2018, the agency reforested 183,314 acres in timber harvest areas or areas 

affected by severe wildfire, helping to ensure forests are able to provide all the benefits that local communities and 

the public depend upon.

Functioning watersheds are an integral component of landscape health, and provide clean water, aquatic habitat, 

recreation opportunities, and other services to local communities. National forests and grasslands contain some of 

the most ecologically and economically significant habitats remaining in the Nation, including 220,000 miles of 

fishable streams, more than 10 million acres of lakes and reservoirs, and 5 million acres of wetlands. The Forest 

Service selects watershed restoration and maintenance priorities using a set of 12 environmental indicators (e.g., 

soils, roads, forest cover, etc.) that reflect watershed condition. The percent of all watersheds on National Forest 

System lands that are in functioning condition, impaired function, and functioning at risk, are tracked nationally and 

improved through the implementation of watershed treatment projects. In FY 2018, the agency met the target of 53 

percent of all watersheds on National Forest System lands in functioning condition. Treatments address restoring 

and enhancing streams and lake habitat, enhancing aquatic organism passage, making stream crossings less 

susceptible to failure after fires or floods, removing invasive species, and enhancing riparian conditions. In FY 2018 

more than 3 million acres of forest and grasslands received treatments to restore watershed function and resilience, 

and more than 3,400 miles of stream habitat were restored or enhanced – improving habitat of listed species and 

recreationally-important fisheries. This work is done in coordination with other Federal agencies, Tribes, State, and 

non-profit partners using the latest science. For example, 35 percent of stream restoration projects were done in 

coordination with 162 unique partners, further leveraging public dollars and increasing impact across landscapes.

Goal 2 – Deliver Benefits to the Public

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

Communities thrive when forests and grasslands provide recreation opportunities and key ecosystem services such 

as clean air and water, fish and wildlife, recreation, forest products, minerals, livestock forage, and firewood. These 

natural resources contribute billions of dollars to the local and national economy and enhance the quality of life in 

many communities. In FY 2018, the Forest Service produced 3.187 billion board feet of timber and completed more 

than 268,000 forest product sales, including over 1,100 timber sale or stewardship contracts. In total, these sales of 

timber, firewood, Christmas trees, mushrooms, and other products had a value of just over $227 million. In addition 

to meeting subsistence and personal use needs, the Forest Products program is critical to local timber-dependent 

economies, generating over 43,000 jobs and about $3.2 billion of gross domestic product in the agency’s most recent 

economic analysis.

The Forest Service works directly with communities to support local needs. For example, in FY 2018, the agency 

worked with States, Tribes, and non-governmental agencies to identify and protect aquatic habitat for the Pacific 

lamprey, a historically important fishery for western Native American Tribes. Lamprey are difficult to detect, were 

historically seen as a nuisance species, and were long overlooked by aquatic managers. Forest Service researchers 

are using environmental DNA sampling as a time-saving and cost-effective method to broadly assess habitat for 

Pacific Lamprey presence. This effort to delineate the distribution of individual aquatic species and its habitat is part 

of a broader effort to delineate the distributions of all aquatic species by national forests. The national effort to 

understand aquatic species distributions by sub-watersheds will speed up and improve project decisions made by the 

agency.

National forests and grasslands receive over 149 million visits annually for hunting, fishing, camping, hiking, and 

other activities. To sustain high customer satisfaction rates, the Forest Service is modernizing our online services for 

easier permitting and visitor planning. The Forest Service is making it easier to obtain permits online or though 

mobile apps and we are simplifying our permitting process for outfitters and guides, maintaining and growing strong 
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collaborations with partners and volunteer groups, and working to address the recreational desires of today’s public, 

who want year-round activities on National Forest System lands.

A milestone for online improvements was the October 1, 2018 launch of the updated Recreation.gov to the public. 

The website services include reservation and trip planning for 100,000 individual sites and activities, and 3,500 

recreation areas managed by seven Federal agencies. Improved call center services include extended hours seven 

days a week. Site users can provide feedback to staff through visitor reviews and online comments. The website 

provides information to staff on visitation rates and trends, which allows them to understand how recreation sites are 

being used. It couples trends with feedback provided directly from customers. Managers will have access to selfhelp features, allowing them to update information and descriptions, and to post alerts that are important to the 

public. The site also eliminates the need for local personnel to handle cash or credit cards for reservations.

The recreation program maintains over 193 million acres of scenic lands, with more than 158,000 miles of trails, 

27,000 developed recreation sites, 220,000 miles of fishable streams, 122 ski areas, and over 450,000 heritage sites. 

The agency uses the National Visitor Use Monitoring program to measure visitor satisfaction with recreational 

facilities, services, and settings. In FY 2018, visitor satisfaction was 95 percent, reflecting our continued efforts to 

provide access to quality landscapes, offer a variety of recreation opportunities and settings, and maintain recreation 

facilities to acceptable standards.

Goal 3 – Apply Knowledge Globally

The Forest Service provides land managers and partners with science-based information, applications, and tools that 

help guide effective policies and management practices. We continue to increase our understanding of complex 

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

economic value of the resources we manage, and the interconnectivity among these elements.

The Forest Inventory and Analysis (FIA) program is the Nation's foremost continuous forest census covering all 50 

States. The FIA assessments also extend to the trust territories and Puerto Rico and include reports on changes in 

carbon budgets and forest status. In collaboration with state and local partners, the FIA Program has expanded urban 

forest monitoring to include 26 cities, crossing a major milestone with data collection underway in more than 25 

percent of the program’s proposed cities. This effort will result in a seamless reporting system that uses the existing 

FIA protocols to provide new and valuable information on trees in previously unmeasured areas. This data on past, 

current, and projected tree numbers by species; the size 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 can help public and private land managers with informed decision-making.

Forest Service researchers, in collaboration with scientists from Canada and France, developed a spatially explicit 

index providing the first global assessment of wildfire risks to water supply. These risks include post-fire damage to 

watersheds, how much area is impacted, soil erosion response to heavy rains, sedimentation, and the risk of these 

factors over time. This framework introduces a tool for long-term monitoring of actions toward the reduction of 

post-fire threats to water security.

Stopping illegal wood imports at U.S. ports is an issue that the Forest Service is helping address. Wood products 

entering the U.S. are subject to inspection to verify legality and consistency with import documents. Specialists from 

USDA’s Animal and Plant Health Inspection Service (APHIS) are often asked by U.S. Customs and Border Patrol to 

identify imported wood products. However, wood identification requires highly specialized expertise. To help 

improve APHIS capacity to accurately screen wood products that are harvested or traded illegally, the Forest Service 

has facilitated three wood identification trainings at U.S. ports in Miami, Los Angeles, and Seattle, for APHIS 

specialists from across the United States. Training sessions focused on characteristics of the Dalbergia (rosewood) 

genus. These woods are very important to the musical instrument industry in the U.S. and are regulated under the 

Convention on International Trade of Endangered Species. International Programs and APHIS participants also 

discussed strategies for better screening of violations of the Lacey Act, which bans trade of illegally sourced wood 

regardless of species. Forest Service scientists are contributing by evaluating chemical methods for identifying the 

taxonomic and geographic provenance of wood to combat illegal logging efforts. Chemical analysis is a promising 

"rapid screening method" for evaluating claims of geographic provenance for wood.
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Forest Service Strategic Goal Indicators, FY 2017-FY 2020

Forest Service Strategic Goal Indicators 2017 Actual 2018 Target 2018 Actual 2019 Target 2020 Target

Percent of watersheds in properly functioning 

condition 53 53 53 52 53

Acres treated annually to sustain or restore 

watershed function and resilience 3,261,444 2,400,000 3,083,812 2,100,000 2,900,000

Number of watersheds moved to an improved 

condition class 17 19 16 14 15

Miles of stream habitat restored or enhanced 3,747 3,070 3,488 2,700 3,200

Communities assisted (number) 13,204 12,500 12,829 12,500 10,000

Volunteer fire departments assisted (number) 8,821 8,500 13,959 8,500 5,800

Index of wildfire risk across NFS lands 100 100 100 99 99

Acres of Nonindustrial Private Forest land being 

managed sustainably under forest stewardship 

management plans 1,404,222 1,350,000 1,771,245 1,200,000 1,300,000

Number of acres treated for native and invasive 

pests 859,119 674,842 924,365 718,000 598,091

Miles of passenger car roads receiving 

maintenance 29,685 30,000 22,904 12,000 20,000

Percentage of recreation facilities with a "Good" 

or "Fair" condition rating 77 74 77 60 77

Percentage of system trails that meet national 

quality standards 22 27 24 12 22

Percent of Nation with accessible FIA data 98 100 96 100 100

Customer satisfaction index score for R&D 76 77 77 77 77

Science Delivery Products 308 265 252 265 265

Number of volunteers and service participants 

caring for the land and serving people 113,316 115,000 118,598 117,000 117,000

Indicators tracked at the Forest Service Level. USDA Key Performance Indicators presented above.
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SPECIAL EXHIBITS

BIOMASS AND WOOD INNOVATIONS

Forest Service Funding for Wood Products, Wood Energy, and The Wood Education and Resource Center

(dollars in thousands)

Activity Budget Line Item 2018 Actual 2019 Estimate 2020 Budget

Wood Innovations Program

Geographically Target Wood 

Utilization

Hazardous Fuels $1,000 $1,000 $1,000

Wood Innovation Grants Hazardous Fuels 7,850 7,850 8,450

Other Market Development 

(Wood Products/Wood 

Energy)

Hazardous Fuels

1,150 1,150 5,550

Subtotal, Wood Innovation 

Program

10,000 10,000 15,000

Biomass Production Forest Products - -

Bioenergy & Biobased Products 

Research

Research and Development 11,133 11,133 9,210

Wood Education and Resource 

Center (WERC)

Working Forest Lands a, 

Urban Forestry, Forest 

Health, National Fire 

Capacity band Hazardous 

Fuels c

960 960 960

Subtotal Biomass Production 12,093 12,093 10,170

Total 22,093 22,093 25,170

a Previously Forest Stewardship Program.

b Previously State Fire Assistance.

c 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 2020

The Forest Service’s emphasis on innovative new use of wood and wood fiber materials focuses on research and 

development (R&D) and post-R&D support to develop markets for trees and under-utilized woody materials, also 

referred to as biomass. The work planned for FY 2020 is structured around Forest Service R&D in forest-based 

bioeconomy (formerly known as Biomass and Bioproducts) and the Forest Service Wood Innovations Program. The 

agency will continue to support and develop innovations in wood utilization and practices that benefit forest 

management activities and rural economic development. The following describes the work to be accomplished.

Biomass Production

In FY 2020, the National Forest System will continue to provide material for biomass markets as a by-product of 

restoration work.

In FY 2018, the agency sold a similar level of biomass as in previous years, making around 2 million green tons 

(fresh cut woody material at a “green” moisture content of half water and half woody material) of biomass available 

for bioenergy markets. The agency expects biomass production in California to continue expanding further in FY 

2020 due to State legislation (SB 859) that requires utilities to purchase a minimum amount of bioenergy from wood 

harvested from high fire-hazard zones.

The National Forest System will continue to work with State & Private Forestry, and Forest Service R&D to grow 

markets and infrastructure for biomass production and utilization across the country.

Bioeconomy Research (formerly Bioenergy and Biobased Products Research)

The agency will continue to work on developing the science and technology for innovative new use of wood and 

wood fibers, especially from undervalued woody biomass materials. Early stage projects include combined chemical 

and biological catalytic synthesis of 3-hydroxylbutyrolaceton (3-HBL) from glucose and electrospun activated 
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carbon fiber from birefinery lignin. 3-HBL is a high-value platform chemical for commodity and specialty 

chemicals, including pharmaceutical applications. Biorefinery lignin can provide a cost-effective precursor for 

producing carbon fibers. Forest Service R&D will continue to support research projects in cellulose nanomaterial 

that has shown promising results from past year investments. These projects are cellulose nanocrystals as strength 

enhancers in concrete for panels and siding, partnering with Owens Corning on cellulose nanomaterials application 

as sizing agent for glass fiber in composites and cellulose nanofibril application as 100 percent-biobased binder for 

wood composites.

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. Wood Innovations Grants fund diverse stakeholders across the country, such as for-profit entities; State, 

local, and Tribal governments; school districts; communities; not-for-profit organizations; institutions of higher 

education, and special purpose districts (e.g., public utilities districts, conservation districts, etc.). The maximum for 

each grant is generally $250,000 and all grantees must match at least 50 percent of the requested Federal funds. This 

competitive funding opportunity will continue in 2020.

Through Wood Innovations, 22 States have established Statewide Wood Energy Teams and 10 States have 

established Statewide Wood Utilization Teams, all designed to expand traditional and innovative wood products

through cooperative agreements with the Forest Service. This funding has leveraged substantial private investment, 

created local jobs, supported forest health priorities, and improved local economies through conversion of certain 

facilities to wood energy and supporting wood products markets. These teams have been extremely effective in 

identifying successful opportunities in the highest priority areas of each State.

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 mid- to high-rise buildings are opening extensive new markets. 

These markets have the potential to produce significant benefits related to reducing costs for hazardous fuels 

reduction and forest restoration. In addition to various Wood Innovation Grants supporting the development of this 

sector, the Forest Service has provided funding to Woodworks, an organization which has played an invaluable role 

in helping architects, engineers, and developers understand how to take advantage of this significant opportunity. 

The agency anticipates a dramatic increase in the expansion of CLT use in commercial building construction in the 

United States.

Wood Education and Resource Center

The Wood Education and Resource Center (WERC) in Princeton, West Virginia was founded by legislation in 1999. 

WERC focuses on primary and secondary wood processing, woody biomass utilization using multidisciplinary 

approaches, efficient utilization of urban tree removals, and partnerships to solve forest products-related issues.

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, Tribal, and Federal lands.

Past Performance

The Forest Service has a long history of success in encouraging the expansion of wood products and wood energy 

markets, and continues to support this expansion. Selected accomplishments include the following:

 In FY 2018, Forest Service awarded over $7.8 million in Wood Innovation Grants to expand wood products and 

wood energy markets to support the management of National Forest System (NFS) lands and other lands with 

significant forest restoration needs, especially those with elevated hazardous fuels reduction needs. This funding 

supports traditional wood utilization projects, promotes using wood as a construction material in commercial 

buildings, and expands wood energy markets. These Federal funds leveraged over $13 million in partner 

investments.

 The WERC plays a critical role in helping forest-related businesses thrive and helping support working forests 

by maintaining a forest industry infrastructure. In FY 2018, WERC hosted numerous workshops and webinars 

primarily for industry, provided wood energy technical assistance to more than 30 facility owners interested in 

installing a wood energy system or in improving the performance of an existing wood energy system, and 

administered key portions of the national Wood Innovations Grants program.
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 In FY 2018, the agency produced 2.02 million green tons of biomass from NFS lands for use in bioenergy 

production.

For FY 2018, P3Nano, a public-private partnership promoting the development and use of wood-based 

nanomaterials for commercial products, will provide funding for renewal research of previously funded projects. Six 

of the seven previously funded investigators submitted proposals to continue their research and three of the six 

proposals were selected to receive renewal funding.

The Waste-to-Wisdom project was completed in December of 2017 with a final report released in March 2018. The 

purpose of this project was to assess the production of bioenergy products for forest residues. The assessment 

included evaluating the production of feedstock from forest residues, production of biochar, briquette and torrefied 

wood from the forest-based feedstock and economics of producing these energy products from forest residues. The 

project team consisted of Forest Service scientists from several research stations, academic researchers, business 

professionals and land managers.

2018 Farm Bill

The 2018 Farm Bill authorizes performance-driven research and development, education, and technical assistance 

for the purpose of facilitating the use of innovative wood products, such as cross-laminated timber and other mass 

timber products, in wood building construction in the United States. It codifies the Wood Innovations Grants and 

reauthorizes and amends the Community Wood Energy and Wood Innovation Program.
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CALIFORNIA TREE MORTALITY

Background

This exhibit is not required by Congressional direction but is included to increase awareness of the tree mortality 

issue, which has affected California the most thus far, but is spreading to other States.

Overview

California experienced five consecutive years of drought between 2011-2015, which, coupled with dense forest 

conditions, rising temperatures, and elevated bark beetle activity, resulted in over 129 million dead trees on 8.9 

million acres across all land ownerships through 2017. Tree mortality on this unprecedented scale degrades overall 

forest health and the services and products national forests provide, adversely effects local economies, and increases 

risks to public and employee health and safety. The high numbers of dead and dying trees of this magnitude also 

elevates the risk of wildfire and complicates safe and effective fire suppression.

Despite increased precipitation in 2016-2017, trees continued to die throughout 2017 and 2018. Statewide, the 

average precipitation for 2017-2018 was 75 percent of normal, and as low as 40 percent of normal in Southern 

California. Trees across the State remain stressed with increasing dead and down fuels.

Background

The central and southern Sierra Nevada was the hardest hit during the drought as 96 million of the 129 million dead 

trees are located in Placer, El Dorado, Amador, Calaveras, Tuolumne, Mariposa, Madera, Fresno, Tulare, and Kern 

Counties. Tree mortality was most severe in the southern Sierra Nevada, with up to 80 to 100 percent tree die-off in 

some of the ponderosa pine and mixed conifer stands.

On National Forest System (NFS) lands, the highest levels of mortality have been in the Stanislaus, Sierra, and 

Sequoia National Forests. The Tahoe, Eldorado and Lake Tahoe Basin Management Unit have also been affected to 

a lesser extent. There are approximately 66 million dead trees on 2.4 million acres on the Sequoia, Sierra, Stanislaus, 

Eldorado, and Tahoe National Forests and the Lake Tahoe Basin Management Unit.

In 2018, Governor Brown expanded the Statewide Tree Mortality Task Force’s mission to include all forest health 

issues. The new Forest Management Task Force, comprised of over 80 State and Federal agencies, local 

governments, utility companies, and other stakeholders, is continuing its efforts on tree mortality but is also 

addressing forest management issues, such as wood products utilization, regulatory barriers, outreach to landowners, 

forest restoration, and prescribed fire. The Forest Service is an active member of this task force.

Agency Priorities

The magnitude of tree mortality requires the agency to prioritize treatments. The Pacific Southwest Region initially 

developed a triage approach in which the first priority is removing dead and dying trees to help protect the public 

and employees from falling trees and reduce wildfire risk in high hazard areas near communities and recreation 

sites, along roads, trails, and utility corridors. The second concurrent priority addresses forest density by focusing on 

forest thinning and hazardous fuels reduction. The third phase will incorporate restoration activities in the tree 

mortality areas. This tree mortality response is a long-term issue that will likely extend for more than 10 years.

Agency Actions

1. Accomplishments as of October 12, 2018, on the six central and southern Sierra Nevada National Forests:

Cumulative MBF a Felled 336,668

Acres Treated 65,973

Acres in Progress 96,632

Acres Re-treated 15,600

a MBF = 1,000 board feet

2. Hazard mitigation completed on values at risk:

o 163 communities with Hazard Tree Mitigation

o 1,136 miles of roads

o 126 miles of powerlines
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o 363 recreation sites

o 89 miles of trail

3. Dead trees can be used for processing at forest product or biomass power facilities. The agency is working 

with facility operators to identify biomass opportunities on NFS lands. Seven bioenergy contracts 

authorized by the California Public Utilities Commission are required to use approximately 700,000 Bone 

Dry Tons (BDTs) in 2018 from mostly tree mortality High Hazard Zones, and over one million BDTs from 

2019 through 2021. This volume will come from Federal, State and private lands. Decking and 

transportation costs from NFS lands that are further away from these facilities may be an issue long term.

Historic and Current Funding

1. From FY 2016 through FY 2018, the Forest Service reprioritized $124 million to address hazard tree 

mitigation around communities, recreation sites, along roads, trails, utility corridors, and other values at 

risk. This includes forest operating funds of more than $15.7 million and an additional $10 million 

reprioritized from within the agency for tree mortality work in California.

2. The Forest Service has invested over $36.4 million in grants in California since 2004 to help diversify 

wood and biomass markets.

3. Approximately 10.7 million acres of NFS lands in Region 5 have been designated for Insect and Disease 

treatment under the 2014 Farm Bill; since 2014, 45 percent of NFS lands in California have been 

designated as Farm Bill watersheds.

4. The Forest Service completed Good Neighbor Authority agreements with the California State Natural 

Resources Department and the California Department of Forestry and Fire Protection (CAL FIRE).
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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 fund 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.

FY 2017 to FY 2020 Funding (dollars in thousands)

FY 2017 Actual FY 2018 Actual FY 2019 Estimate FY 2020 Budget

$6,429 $3,000 $3,000 $3,000

Past Performance

In FY 2018, 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, $1.75 million, was held in the CRF to support unplanned projects and provide additional funding 

for others. There were no projects or initiatives funded by the Chief’s Reserve Fund in FY 2018. Unused funds 

are distributed to the Regions, Stations, and Northeastern Area as carryover in the following year.
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CRITERIA FOR ALLOCATING FUNDING FOR RECREATION ACCESS

Background

This exhibit responds to a Congressional Directive from Senate Report 114-281:

“The Committee believes increasing access to our public lands is important and provides funding to all four land 

management agencies, the Bureau of Land Management, National Park Service, Forest Service, and the Fish and 

Wildlife Service, to complete projects that enhance access to public lands for hunting, fishing, and other recreational 

activities. The Committee expects recreational access projects to be selected based on their role in meeting key 

recreation needs and the agencies should consider all potential projects rather than limit consideration only to 

projects included on the fiscal year 2017 Land and Water Conservation Fund discretionary and mandatory lists. The 

Committee strongly encourages the land management agencies to work with their respective regions, State offices, 

and/or management units to identify projects not on the submitted lists to ensure other recreational access projects 

are appropriately considered for funding. Further, the agencies are again directed to include in future budget 

justifications an explanation of the process and criteria used for allocating funds for recreational access.”

Overview

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, such as large, intact areas for 

recreation, 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.

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 2018, for priority recreational access projects.

FY 2020 Criteria

The Forest Service prioritizes land acquisitions that have the broad support of stakeholders, local officials, and 

others at the local level who want to remove barriers to public access and attract more visitors to recreate in a safe, 

accessible environment.

The agency evaluates proposed recreational access tracts for Land and Water Conservation Fund 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 National Forest System (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? Hunting, fishing, hiking, other?

 Has the public indicated that more or improved access is needed in this area?

 What is the level of local support for the acquisition?

Selected Examples of Recent Progress

In FY 2018 the agency maintained and opened public access across the country. Examples of 2018 projects include:

Bitterroot Trails Tract, Bitterroot National Forest, Montana: The Bitterroot National Forest recently acquired 120 

acres within the Bass Creek recreation area, the second most popular recreation destination on the forest. This low 

elevation system of trails provides year-round recreational use and is of primary importance to the Back Country 

Horsemen who start conditioning their horses on these trails in the spring before their summer wilderness trail 

maintenance trips. This acquisition had substantial local support as evidenced by a 50 percent funding match of

$128,000 coming from the following groups: Back Country Horsemen, Montana Fish and Wildlife Conservation 

Trust, Mule Deer Foundation, National Wild Turkey Federation, and the Rocky Mountain Elk Foundation.

Divided Mountain, George Washington and Jefferson National Forests, Virginia: The 187-acre Divided Mountain 

acquisition will provide additional public road access into the Cherokee National Forest at the Tennessee/Virginia 

border and additional access to the 3,682-acre Pond Mountain Game Lands in North Carolina. The public uses these 

lands for hunting, fishing, horseback riding, hiking, and cross-country skiing. The parcel connects to the Rogers 

Ridge Scenic Area; the Virginia Creeper National Recreation Trail; the Mount Rogers National Recreation Area; 

Lewis Fork Wilderness; and Grayson Highlands State Park, all in Virginia.
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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 WorkOther, and Salvage Sale funds. Changes between estimated and actual indirect expenditures shall be reported in 

subsequent budget justifications.”

Overview

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 cost allocation mechanism to charge expenses that 

cannot reasonably be charged directly to a single program such as line officers’ salaries and expenses, (e.g. District 

Rangers), leases, utilities, telephones, administrative support, information technology, human resources, computers, 

and other common services. The cost pools are designed to maintain accurate reporting of the true costs per 

program, by having each program contribute into the cost pools an amount based on its share of indirect, support, 

and common services charges.

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

 Employee salaries, benefits and related costs for line officers, union officials, civil rights positions, and safety 

officers.

Cost Pool 2 - Direct Project Approved Activities

 Employee 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 3 - Legislative and Public Communications

 Employee salaries, benefits, and related costs for public affairs, and legislative liaison positions.

Cost Pool 4 - Ongoing Business Services

 Employee salaries, benefits, and related costs for business operations activities which include budget, finance, 

acquisition, human resource management, procurement, grants and agreements, general receptionists, and 

information systems management positions.

Cost Pool 5 - Common Services

 Leases, utilities, corporate communications, office equipment, supplies, radios, and corporate computer related 

expenses for all employees.

Other Pooled Costs

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. OWCP and UCI 

do not assess Forest Service programs but are for identifying funds for payments required by the Department of 

Labor. Unlike cost pools 1 through 5, these costs are charged directly to a program and then pooled to make required 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

155

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; for 2017, 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 include 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, only permanent employees DLHs are used, because these costs (rent, communication, utilities, etc.) are 

driven primarily by the need to support the permanent workforce. 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.

FY 2020 Program Changes

FY 2017 to FY 2020 Cost Pool (1-5) Assessments (dollars in thousands)

Budget Line Item 2017 Actual 2018 Actual 2019 Estimate 2020 Budget

Cost Pool Assessment $954,645 $942,920 $947,430 $861,000

Percent of Total Forest Service Budget 15.7% 14.8% 15.3% 16.6%

Forest Service Cost Pool Exhibits

For an estimate of FY 2020 Total Cost Pool 1-5 Assessments by Budget Line Item, see Exhibit 1.

For a comparison of FY 2017 and FY 2018 Actual Cost Pool 1-5 Assessments and FY 2019 Estimated Cost Pool 1-

5 Assessments by Budget Line Item, see Exhibit 2.

For a display of Cost Pool Actuals for FY 2017 and FY 2018 by Pool and Region, see Exhibit 3.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Exhibit 1. Estimate of FY 2020 Total Cost Pool 1-5 Assessments by Budget Line Item (dollars in thousands)

Budget Line Item

FY 2020 

President's 

Budget

Estimated 

Total Cost Pool 

Assessments by 

BLI

Cost Pool 

Assessments as 

Percent of BLI

Assessed as 

Percent of 

Total Cost 

Pools

Forest and Rangeland Research .................................................. $177,500 $37,275 21.1% 4.3%

Forest Inventory and Analysis

Total Research........................................................................

77,000

254,500 37,275

0.0%

21.1%

0.0%

4.3%

Forest Health Fed Lands ............................................................. 51,495 9,527 18.5% 1.1%

Forest Health Coop Lands........................................................... 34,376 2,527 7.4% 0.3%

Working Forest Lands................................................................. 19,475 1,618 8.3% 0.2%

Forest Legacy.............................................................................. - - - -

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

International Forestry.................................................................. - - - -

National Fire Capacity ................................................................ 65,930 1,818 - 0.2%

Total State and Private Forestry........................................... 171,276 15,490 9% 1.8%

Collaborative Forest Landscape Restoration............................... - - - -

Land Mgmt Planning, Assess & Monitoring............................... 179,263 31,507 17.1% 3.7%

Recreation, Heritage, and Wilderness ......................................... 257,848 77,278 32.2% 9.0%

Wildlife & Fisheries Habitat Management.................................. 136,430 32,780 24.0% 3.8%

Hazardous Fuels.......................................................................... 450,000 68,739 15.3% 8.0%

Grazing Management.................................................................. 56,856 14,456 25.4% 1.7%

Forest Products............................................................................ 375,000 94,421 25.2% 11.0%

Vegetation & Watershed Management ....................................... 180,000 37,815 21.0% 4.4%

Minerals and Geology Management ........................................... 74,200 15,365 20.7% 1.8%

Land Use Authorization and Access ........................................... 74,000 16,183 21.9% 1.9%

Law Enforcement Operations...................................................... 129,153 16,365 12.7% 1.9%

Total National Forest System................................................ 1,912,750 404,909 21.2% 47.0%

Preparedness ............................................................................... 1,339,620 261,324 19.5% 30.4%

Suppression................................................................................. 1,011,000 96,370 9.5% 11.2%

Total Wildland Fire Management ........................................ 2,350,620 357,694 15.2% 41.5%

Facilities...................................................................................... 151,000 2,333 1.5% 0.3%

Roads .......................................................................................... 218,000 14,939 6.9% 1.7%

Trails........................................................................................... 65,000 2,521 3.9% 0.3%

Legacy Roads & Trails................................................................ - - - -

Total Capital Improvement & Maintenance ....................... 434,000 19,793 4.6% 2.3%

Land Acquisition......................................................................... - - - -

Total Land Acquisition.......................................................... - - - -

Brush Disposal............................................................................ 8,000 1,914 23.9% 0.2%

Timber Salvage Sales.................................................................. 38,000 8,613 22.7% 1.0%

Cooperative Work, Knutson-Vandenburg Trust Fund ................ 41,766 9,570 22.9% 1.1%

Reforestation Trust Fund............................................................. 23,641 5,742 24.3% 0.7%

Total Permanent and Trust Funds ....................................... 111,407 25,839 23.2% 3.0%

Total Assessed BLI's........................................................... 5,157,553 861,000 16.7% 100%

TOTAL FOREST SERVICE.......................................... $5,072,496 $861,000 17.0% 100%

Only includes appropriations (BLIs) which will be assessed for cost pools 1-5 in FY 2020.

Supplemental, emergency, transfer, or Payments to States funds are not assessed for cost pools 1-5.

BD/KV/SSF budget amounts based upon FY 2019 RSA estimated obligation data.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Exhibit 2. Comparison of FY 2017 and FY 2018 Actual Total Cost Pool Assessments 1-5 and FY 2019 

Estimated Cost Pool 1-5 Assessments by Budget Line Item (dollars in thousands)

Fund Prog

FY 2017 

Actual 

Cost 

Pools 1-5

Percent 

of Total 

FS Cost 

Pools

1-5

FY 2018 

Actual 

Cost 

Pools 1-5

Percent of 

Total FS 

Cost 

Pools

1-5

FY 2019 

Planning 

Budget

Estimated 

Cost 

Pools

1-5

Cost 

Pools as

a 

Percent 

of BLI

Percent 

of Total 

FS Cost 

Pools

1-5

Forest and Rangeland Research . FRRE $29,240 3.1% $28,881 3.0% $220,000 $29,019 13.2% 3.1%

Forest & Rangeland Research –

FIA....................................... FRFI 9,901 1.0% 9,779 1.0% 77,000 9,826 12.8% 1.0%

Total Research....................... 39,140 4.1% 38,660 4.0% 297,000 38,845 13.2% 4.1%

Forest Health Fed Lands ............ SPFH 10,501 1.1% 10,372 1.1% 55,500 10,422 18.8% 1.1%

Forest Health Coop Lands.......... SPCH 2,864 0.3% 2,829 0.3% 41,000 2,842 6.9% 0.3%

Working Forest Lands................ SPST 1,909 0.2% 1,886 0.2% 20,500 1,895 9.2% 0.2%

Forest Legacy............................. LGCY - - - - 60,625 - - -

Forest Legacy Program - Prog 

Admin .................................. LGPA 955 0.1% 943 0.1% 6,400 947 14.8% 0.1%

Urban and Community Forestry. SPUF 1,909 0.2% 1,886 0.2% 28,500 1,895 6.6% 0.2%

International Forestry................. SPIF 955 0.1% 943 0.1% 9,000 947 10.5% 0.1%

National Fire Capacity ............... SPCF - 0.0% 1,886 0.2% $80,000 1,895 2.4% 0.2%

Total State & Priv. Forestry. 19,093 2.0% 20,744 2.2% 301,525 20,844 6.9% 2.2%

Collaborative Forest Landscape 

Restoration........................... CFLN 9,546 1.0% 9,429 1.0% 40,000 9,474 23.7% 1.0%

Land Management Plan, 

Assessment & Monitor ........ NFMP 38,186 4.0% 37,717 4.0% 179,263 37,897 21.1% 4.0%

Recreation, Heritage, and 

Wilderness........................... NFRW 81,145 8.5% 80,148 8.4% 257,848 80,532 31.2% 8.6%

Wildlife and Fisheries Habitat 

Management ........................ NFWF 29,594 3.1% 33,686 3.5% 136,430 33,847 24.8% 3.6%

Hazardous Fuels......................... NFHF - - 71,292 7.5% 415,694 71,633 17.2% 7.6%

Grazing Management................. NFRG 16,229 1.7% 16,030 1.7% 56,856 16,106 28.3% 1.7%

Forest Products........................... NFTM 89,737 9.4% 97,928 10.3% 366,000 98,397 26.9% 10.5%

Vegetation and Watershed 

Management ........................ NFVW 32,458 3.4% 39,220 4.1% 180,000 39,407 21.9% 4.2%

Integrated Resource Restoration NFRR 26,730 2.8% - - - - - -

Minerals and Geology 

Management ........................ NFMG 17,184 1.8% $16,973 1.8% 74,200 17,054 23.0% 1.8%

Landownership Management ..... NFLM 19,093 2.0% 18,858 2.0% 74,000 18,949 25.6% 2.0%

Law Enforcement Operations..... NFLE 17,184 1.8% 16,973 1.8% 129,153 17,054 13.2% 1.8%

Total Nat. Forest System ..... 377,085 39.5% 438,254 45.9% 1,909,444 430,875 22.6% 45.9%

Preparedness .............................. WFPR 242,480 25.4% 239,502 25.1% 1,339,620 341,075 25.5% 36.4%

Suppression................................ WFSU 101,192 10.6% 99,950 10.5% 1,665,000 - - -

Hazardous Fuels Management ... WFHF 68,734 7.2% - - - - - -

National Fire Capacity ............... WFCF 1,909 0.2% - - - - - -

Total Wildland Fire Mgmt... 414,316 43.4% 339,451 35.6% 3,004,620 341,075 11.4% 36.4%

Facilities..................................... CMFC 15,274 1.6% 15,087 1.6% 151,000 15,159 10.0% 1.6%

Roads ......................................... CMRD 36,277 3.8% 40,750 4.3% 218,000 $36,002 16.5% 3.8%

Trails.......................................... CMTL 22,911 2.4% 22,630 2.4% 80,000 22,738 28.4% 2.4%

Legacy Roads and Trails............ CMLG 2,864 0.3% - - - 4,942 - 0.5%

Total Capital Improve & 

Maint................................ 77,326 8.1% 78,466 8.2% 449,000 78,842 17.6% 8.4%

Land Acquisition - Acq Mgmt ... LAAM 1,909 0.2% 1,886 0.2% 7,352 1,895 25.8% 0.2%
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

158

Fund Prog

FY 2017 

Actual 

Cost 

Pools 1-5

Percent 

of Total 

FS Cost 

Pools

1-5

FY 2018 

Actual 

Cost 

Pools 1-5

Percent of 

Total FS 

Cost 

Pools

1-5

FY 2019 

Planning 

Budget

Estimated 

Cost 

Pools

1-5

Cost 

Pools as

a 

Percent 

of BLI

Percent 

of Total 

FS Cost 

Pools

1-5

Land Acquisition........................ LALW - - - - 56,985 - - -

Total Land Acquisition......... 1,909 0.2% 1,886 0.2% 7,352 1,895 25.8% 0.2%

Brush Disposal........................... BDBD 1,909 0.2% 1,886 0.2% 12,048 895 7.4% 0.1%

Timber Salvage Sales................. SSSS 8,592 0.9% 8,486 0.9% 31,364 8,677 27.7% 0.9%

Coop Work, KnutsonVandenburg Trust ................ CWKV 9,546 1.0% 9,429 1.0% 69,738 9,974 14.3% 1.1%

Reforestation Trust Fund............ RTRT 5,728 0.6% 5,658 0.6% 30,000 6,035 20.1% 0.6%

Total Permanent and Trust 

Funds ............................... 25,775 2.7% 25,459 2.7% 143,150 25,581 17.9% 2.7%

Total Assessed BLI's.......... 954,645 100% 942,920 100% 6,112,091 937,956 100% 100%

TOTAL FOREST 

SERVICE.................. 954,645 100% 942,920 100% 5,580,940 937,956 100% 100%

Only includes appropriations (BLIs) which were assessed for cost pools 1-5.

Supplemental, emergency, transfer, or Payments to States funds are not assessed for cost pools 1-5.

Displays BLI's after transfers for the Integrated Resource Restoration pilot.

BD/KV/SSF budget amounts based upon FY 2019 RSA estimated obligation data.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Exhibit 3. Cost Pool Expenditures for FY 2017 and FY 2018 by Pool and Region (dollars in thousands)

Cost Pool FY 2016 FY 2017 FY 2018

Cost Pool 1 General Management ....................................................... $161,720 $165,039 $165,024

Cost Pool 2 Direct Project Approved Activities .................................. 12,745 12,671 12,426

Cost Pool 3 Legislative and Public Communications.......................... 33,233 34,145 33,299

Cost Pool 4 Ongoing Business Services .............................................. 354,833 359,522 351,244

Cost Pool 5 Common Services............................................................. 392,834 383,269 380,927

Total Cost Pool Expenditures ........................................................... 955,365 954,645 942,920

Region/Station/Area FY 2016 FY 2017 FY 2018

Region 1 Northern ........................................................................... $39,778 $39,331 $39,344

Region 2 Rocky Mountain............................................................... 34,886 34,899 35,620

Region 3 Southwestern .................................................................... 39,138 38,988 39,239

Region 4 Intermountain ................................................................... 38,446 38,268 38,582

Region 5 Pacific Southwest ............................................................. 58,091 57,260 57,469

Region 6 Pacific Northwest ............................................................. 68,000 67,692 68,690

Region 8 Southern ........................................................................... 42,505 41,609 43,081

Region 9 Eastern.............................................................................. 36,596 36,420 38,203

Region 10 Alaska............................................................................... 15,983 15,728 15,620

Region 11 Forest Products Lab.......................................................... 20 33 39

Region 12 International Institute of Tropical Forestry....................... 1,239 1,270 1,438

Region 13 Washington Office-HQ .................................................... 77,734 82,700 80,054

Region 14 Chief's Reserve................................................................. - - -

Region 15 National Operations.......................................................... 142,926 141,325 142,909

Region 17 Accounting Adjustments .................................................. - - -

Region 22 Rocky Mountain Research Station ................................... 78 109 112

Region 24 Northern Research Station................................................ 642 859 923

Region 25 Central Business Services................................................. 358,036 357,188 340,455

Region 26 Pacific Northwest Research Station.................................. 292 118 241

Region 27 Pacific Southwest Research Station.................................. 26 23 32

Region 33 Southern Research Station................................................ 112 84 85

Region 42 Northeastern Area............................................................. 837 741 784

Total Cost Pool Expenditures ........................................................... $955,365 $954,645 $942,920
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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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 and expert witnesses stated 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 2018 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

%20Report.pdf

Subsequent EAJA information is reported the Equal Access to Justice Act Statistics table listed below.

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.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

161

Forest Service Equal Access to Justice Act Statistics for FY 2011 through FY 2018 

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-MDWM, 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

Cost Pools

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

Fish and Wildlife

Service. Forum on 

Wildland Urban 

inter. Attorney Fees 

only.

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-NEJL, 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

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

2011 Subtotal 1,471,666
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

162

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

10/6/2011 10-cv-01514-

JDB

Public Employees for 

Environmental 

Responsibility v. 

USDA, USFS

56 RPM Equal 

Access to Justice 

(PD)

Public 

Employees for 

Environmental 

Responsibility

10/11/2011 Cost Pools $1,848

1/27/2012 10-cv-6337-

TC

Cascadia Wildlands v. 

USFS

56 RPM Equal 

Access to Justice 

(PD)

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-MDWM

Montana Wilderness 

Association v. Vicki 

Christiansen, USFS

NFRW11 MWSA 

EAJA FEES 2012 

& CMTL11 MWA 

EAJA BILL

Earthjustice 6/4/2012

Recreation, 

Wilderness, & 

Wild and 

Scenic Rivers

137,000

6/14/2012 CV 08-92-

DWM

Native Ecosystems 

Council and Alliance 

for the Wild Rockies. 

Smith Creek

Creek Vegetation 

Treatment

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-CV-00026

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

8/22/2012 11-VC-830-

RCC

Defenders of Wildlife 

v. USFS Hardshell Project Defenders of Wildlife 8/28/2012

Minerals and 

Geology 

Management

10,500

9/18/2012 09-CV-131 

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

2012 Subtotal 485,364

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-CV-286-

BLW

Advocates for the 

West Inc.

Grazing 

Management

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-MDWM Native Ecosystems Integrated Resource 

Restoration Rebecca Smith 3/1/2013 Wildlife & Fish Management 33,279

2/28/2013 CV 11-99-MDWM Native Ecosystems Integrated Resource 

Restoration 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, 

5/9/2013

Recreation, 

Wilderness, & 

Wild and 

125,000
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

163

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

Williams & 

Weese, P.C.

Scenic Rivers

5/23/2013 10-CV-01797-

JCC Wilderness Watch 

Glacier Peak 

Wilderness Are. 

Green Mountain 

Lookout.

Wilderness 

Watch 5/24/2013 Facilities 70,804

5/23/2013 12-CV-01757-

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-CV-1460 

PJH Watersheds Project Western WatershedsProject

Advocates for 

the West Inc. 6/19/2013 Grazing Management 264,358

6/18/2013 08-CV-1460 

PJH Watersheds Project Western Watersheds Project

Keher and Van 

Nest LLP 6/19/2013 Grazing Management 172,703

9/10/2013 09-cv-01272-

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 

Management

45,500

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-cv-2523-

LKK-JFM

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-cv-00612-

EJL-REB

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-cv-02921-

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

2013 Subtotal 1,586,978

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

9/25/2013 10-cv-00612-

EJL-REB

Western Watersheds 

Project

Western Watersheds 

Project

Advocates for the 

West Inc. 11/14/2013 Hazardous Fuels Reduction $125,000

1/10/2014 3-11-CV-895-

ST

Friends 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-MDLC

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-CV-1827-

CL

Murphy Co High 

Cascade Inc.

Stipulation for 

Temporary Stay of 

Proceedings

American Forest 

Resource Council 3/24/2014 Forest Products 7,500
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

164

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

4/24/2014 13-CV-01157-

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-CV-00804-

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-CV-02172-

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

6/24/2014 12-CV-02416-

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.

Sawtooth Minidoka 

Travel Plan Appeal 

Ligation

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 N/A Citizens for Healthy 

Communities

Minerals Geology 

Management. 

Attorney Fees only

Western 

Environmental 

Law

Funds 

Committed, 

Pending 

Final 

Judgment 

Information

Minerals 

Geology 

Management

60,000

9/26/2014 11-CV-00679-

LJO-DLB

Sequoia Forest Keeper, 

Conservation Congress, 

Earth Island Institute, 

Oregon Wild, Cascadia 

Wildlands, Ouachita 

Watch League, Utah 

Environmental, Western 

Watersheds, and 

Wilderarth Guardians

Land Management 

Planning

Matt Kenna, 

Attorney 9/26/2014

Land 

Management 

Planning

100,000

2014 Subtotal 1,335,157

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

Trail Project

Western 

Environmental 

Law Center 

IOLTA

11/24/2014

Trails-Capital 

Improvement & 

Maintenance 

$32,000

12/11/2014 3:10-CV01397-SI

League of Wilderness 

Defenders/Blue 

Mountains Biodiversity 

Project v. USFS

Blue Mountains 

Biodiversity 

League of 

Wilderness 

Defenders

2/18/2015

Vegetation 

Watershed 

Management

179,699
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

165

Date Rec Docket, Court Case Project Name Vendor Name Date 

Certified Program Amount

01/18/2015 2:14-CV-00729 Western Watersheds Western Watersheds Ryberg Erik 1/21/2015

Integrated 

Resource 

Restoration

5,350

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

01/27/2015 14-CV-00284-

JLK

Citizens for Healthy 

Communities v. USFS

Minerals Geology. 

Stipulation of 

Dismissal. Attorney

Fees. NFMG0414

Western 

Environmental 

LawLaw Center 

IOLTA

1/29/2015

Minerals 

Geology 

Management

25,000

01/29/2015 10-CV-03004-

CL Eric Navickas, et al Ashland Forest Resiliency Sean T Malone 2/23/2015 Forest Products 45,000

2/06/2015 13-CV-01723-

RBJ

High Country 

Conservation Advocates Attorney’s Fees Earthjustice 3/11/2015

Minerals 

Geology 

Management

116,136

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

8/14/2015 CV-14-1198 

(CKK)

Public Employees for 

Environmental 

Responsibility

Attorney’s Fees only

Public Employees 

for Environmental 

Responsibility

8/13/2015 Pool 1 Cultural 

Transformation 4,000

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

2015 Subtotal 680,351

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

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

EARTHJUSTIC

E

11/16/2015

Recreation 

Heritage 

Wilderness

90,638

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
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

166

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

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 of 

Agriculture

("USFS") 

59 NFMG Ascot 

Settlement-Jerome 

E Perez

Lewis & Clark 

College (Law 

School) Earthrise 

Law Center

12/8/2015

Minerals 

Geology 

Management

77,500

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 

2/9/2016 CV-13-129-

M-DWM

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 

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

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

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

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

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
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

167

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

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

3/25/2016 15-CV-01066-

RSL

Alpine Lakes Protection 

Society/Kittitas 

Audubon Society & 

Sierra Club, 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 

Okanogan-Wenatchee 

National Forest

Alpine Lakes 

Protection 

Society/Kittitas 

Audubon Society & 

Sierra Club.

Bahr Law Office 

P C 3/29/2016

Recreation 

Heritage 

Wilderness

10,000

3/25/2016 15-CV-01066-

RSL

Alpine Lakes Protection 

Society/Kittitas 

Audubon Society & 

Sierra Club, and 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 

Okanogan-Wenatchee 

National Forest

Alpine Lakes 

Protection 

Society/Kittitas 

Audubon Society & 

Sierra Club.

Bahr Law Office 

P C 3/29/2016

Recreation 

Heritage 

Wilderness

22,000

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

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

7/15/2016 CV 10-104-

M-DWM

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
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

168

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

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

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

8/31/2016

2:11-CV1647-MCECMK

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

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

9/9/2016

5:12-CV01841-TJHOP

Richard Fragosa, Peter 

Wiechers, Alasdair 

Coyne, and John 

Karevoll v.

U.S. Forest Service 

including Randy Moore, 

in his official

capacity as Regional 

Forester for the Pacific 

Southwest Region of the 

U.S. Forest

Service.

Fragosa

Matt Kenna 

Attorney 9/13/2016 Pool 4 Ongoing 

Bus Svs 170,000

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
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

169

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

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 Svstem 60,000

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

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

2016 Subtotal 2,134,714

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

10/05/2016 1:16-CV00025-ELJ

Idaho Conservation 

League

Golden Eagle 

Audubon Society

Advocates for 

the West 10/06/2016 Pool 4 Ongoing Bus SVS $60,000

10/12/2016

2:13-CV02315-TLNAC

FOIA-Phase I Upper 

Echo Lake

Hazardous Fuels 

Reduction Project Nossaman LLP 10/18/2016 Hazardous Fuel Reduction 150,000

10/14/2016

5:16-CV00175-JBGDTB

FOIA Story of Stuff Project Greenfire Law 

PC 10/18/2016 Hazardous Fuel Reduction 17,900

10/27/2016

1:15-CV1329-WBSEPG

Sierra National Forest 

French Fire 

Recovery and 

Reforestation Project

Center for 

Biological 

Diversity

10/27/2016 Forest Products 31,751

02/10/2017 9:16-CV-35-

DWM-M

Leanne Marten Moosehorn Ditch 

Timber Sale Contract

Public Interest 

Defense Center 02/10/2017

Integrated 

Resource 

Restoration

36,443

03/22/2017 2:15-CV00027-BMM

Gallatin Wildlife 

Association

Gallatin Wildlife 

Association

Cottonwood 

Environmental 

Law Center

03/23/2017

Integrated 

Resource 

Restoration

104,000

04/25/2017 06-CV-187-J BRANDT 352123-VIBRANDT

Mountain States 

Legal 

Foundation

04/27/2017 Landownership 

Management 50,000

06/29/2017 15-VC-2176 

(CKK)

FACA (Federal 

Advisory Committee)

“The Matter”. 

Attorney Fees. Civil 

Action Dismissal

Center for 

Biological 

Diversity

06/29/2017 Hazardous Fuel 

Reduction 6,000

07/03/2017 15-CV00246-BLW Keith B Lannom Idaho Conservation 

League 

Advocates for 

the West 07/03/2017 Minerals Geology MGT 70,000

07/31/2017 1:16-CV00457-BLW Watersheds Project Western Watersheds 

Project

Advocates for 

the West 08/01/2017 Pool 5 Common SVS 22,686

2017 Subtotal 548,780

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

01/25/2018 3:16-CV00102-CWD Johnson Bar Johnson Bar Fire 

Salvage Project

Advocates for 

the West 01/25/2018 Forest Products 144,040

02/20/2018 6:16-CV01095-JR

Loafer Timber Sale 

Project

Loafer Timber Sale 

Project

Western 

Environmental 

Law Center

02/21/2018 Forest Products 110,000

04/20/2018 1:14-CV00737-CL Attorney Fees Western Watersheds 

Project

Advocates for 

the West 04/20/2018

Forest Products 

and Hazardous 

Fuel Reduction

136,478
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

170

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount

07/25/2018 9:16-CV00056DVM Attorney Fees Save Our Cabinets 

(SOC)

Western 

Mining Action 

Project 

07/31/2018

Roads Capital 

Imprv Mtnce, 

Salvage Sales, 

and Forest 

Products

142,910

07/25/2018 9:16-CV00056DVM Attorney Fees Libby Mining 

Company

Morrison 

Sherwood 

Wilson & 

Deola CL

07/31/2018

Vegetation 

Watershed 

MGT and 

Forest Products

68,023

08/06/2018 1:17-CV00434-CWD Attorney Fees

Watersheds Project 

and Wild Earth 

Guardians

Advocates For 

the West Inc. 08/06/2018

LMP 

Assessment 

Monitoring and 

Grazing 

Management

80,000

08/20/2018 9:15-CV-148-

DLC Attorney Fees Beetle Strategy MSBT Law Chartered 08/21/2018 Hazardous Fuel Reduction 18,000

09/12/2018 3:17-CV00416-SI Attorney Fees Wild and Scenic River Volker Law 

Offices 09/13/2018

Recreation 

Heritage 

Wilderness

35,086

09/12/2018 1:18-CV00653-DLF FOIA Attorney Fees

Immigration 

Reform Law 

Institute

09/14/2018

Law 

Enforcement 

OPS WO

1,168

09/12/2018 9:17-CV00021-DLC Attorney Fees Stonewall Vegetation 

Project

Public Interest 

Defense Center 

PC

09/18/2018

Pool 5 

Common 

Services, 

Vegetation 

Watershed 

MGT, and 

Mineral and 

Geology MGT

77,500

09/18/2018 1:17-CV01277-JEB FOIA Attorney Fees

Public 

Employees For 

Environmental

09/19/2018 Forest Products 4,434

2018 Subtotal 817,639 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

171

2018 FARM BILL AND 2018 OMNIBUS AUTHORITIES IMPLEMENTATION

Background

The Agriculture Improvement Act of 2018 (P.L. 115-334), also known as the “2018 Farm Bill,” authorized or 

reauthorized many programs that will allow the Forest Service to strengthen partnerships with States, treat more 

acres for hazardous fuels, treat more acres for insects and disease, and increase the pace and scale of overall 

treatments to improve forest conditions.

Section 8401 of the 2018 Farm Bill authorizes up to $20 million annually for cross-boundary hazardous fuels 

reductions from FY 2019 through FY 2023. Section 8401 authorizes $660 million annually for hazardous fuels 

reduction through FY 2023. Sections 8404-8408 of the 2018 Farm Bill authorize various forest health restoration 

programs including the Water Source Protection Program, the Watershed Condition Framework, and hazardous 

fuels reduction. Section 8611 authorizes a categorical exclusion for vegetation management in greater sage grouse 

and mule deer habitats. Section 8630 authorizes a pilot program for vegetation management in utility rights of way 

and modifies liability requirements in those corridors.

The Consolidated Appropriations Act, 2018 (P.L. 115–141) (Omnibus), section 202, amended the Healthy Forests 

Restoration Act (HFRA) to add section 605 for wildfire resilience projects. This section creates a new categorical 

exclusion to reduce risk of, and increase resilience to, wildfires on treatment areas up to 3,000 acres. In FY 2018, 

seven projects were proposed and a decision was signed for one of them.

The Good Neighbor Authority (Section 8206 of the 2014 Farm Bill and Title IV, Sec. 417 of the Consolidated 

Appropriations Act, 2014, and Section 8624 of the 2018 Farm Bill) allows the Forest Service to enter into 

cooperative agreements or contracts with States, Puerto Rico, Tribes, and Counties and allows them to perform 

watershed restoration and forest management services on Federal and non-Federal lands. The 2014 Farm Bill 

permanently authorized the Good Neighbor Authority. The 2018 Omnibus, section 212, amended the Farm Bill 

authority to allow reconstruction, repair and restoration of permanent roads necessary to implement projects. Section 

8624 of the 2018 Farm Bill provides the authority for the Forest Service to enter into Good Neighbor Agreements 

with Counties and Tribes. The 2018 Farm Bill also authorizes Governors to retain receipts from the sale of federal 

timber under the Good Neighbor Authority.

Section 8204 amended the HFRA by adding sections 602 and 603 to address insect and disease infestation. Section 

602 of HFRA 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. Section 8407(b) 

of the 2018 Farm Bill adds hazardous fuels reduction to the types of projects that may be carried out under the 

existing insect and disease provisions.

2014 Farm Bill Section 8205 amended the HFRA by adding section 604, permanently authorizing Stewardship End 

Results Contracting. The 2018 Omnibus further amended the authority providing for 20 year contracts under certain 

conditions (sec. 207) and providing increased viability for funding cancellation ceilings (sec. 204).

Section 8302 of the 2014 Farm Bill amended the 2008 Farm Bill, Section 1252, extending the Agriculture 

Conservation Experienced Services program to the Forest Service. The program provides a cost-effective 

recruitment opportunity to obtain temporary technical services of non-Federal, experienced workers age 55 and 

older to assist in conservation-related programs. The 2018 Farm Bill repealed this authority effective October 1, 

2023.

Insect and Disease Designations

Based on requests from 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 28.9 million acres of National Forest System (NFS)

lands based on requests from Regional Foresters, bringing the total areas designated to 74.5 million acres.
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Within these designated areas, 186 projects have been proposed under the 2014 Farm Bill Insect and Disease 

provisions. One hundred forty-four Farm Bill decisions have been signed (124 Categorical Exclusions, 17

Environmental Assessments, and 3 Environmental Impact Statements). Proposed actions include commercial timber 

harvesting, pre-commercial harvesting, prescribed burning, and chemical and biological control of pest species. 

Several additional projects are under development and will be included in future reports. The agency will continue 

to build on these efforts in an expedited manner.

Good Neighbor Authority

The agency continues to grow relationships with State partners using the Good Neighbor Authority. Since the time

agreement templates were first approved by OMB in June 2015 through December of 2018, 195 Good Neighbor 

agreements have been established in 37 States. Many are long-term agreements up to 10 years and all rely on the 

permanent authority provided in the Farm Bill.

Summary of Current Agreements/Status

 Master Agreements (MA) establish a framework for the State-Forest Service collaborative relationship with 

future projects identified in Supplemental Project Agreements. 48 MAs have been executed with agencies in 33

States.

 105 Supplemental Project Agreements have been executed in 28 States.

 39 stand-alone project agreements have been executed in 13 States.

 Agreements include 82 national forests. Some statewide project agreements may expand from a limited scope to 

many or all national forests in the State over time.

 The scope of agreements is often broad to include the full suite of authorized forest, rangeland, and watershed 

restoration activities, though most have a primary emphasis. Of the 195 total supplemental and standalone 

project agreements, the primary emphasis includes: timber-42 percent, fuels-16 percent, wildlife/fisheries-18

percent, other restoration-19 percent, and collaboration or undetermined-5 percent.
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 The 2018 road reconstruction authority has been implemented with Engineering policy guidance, updated 

agreement templates for all new agreements, and modification of many existing agreements to allow projects 

that require road reconstruction.

Executed or Closed Agreement Status

Project agreements are being used to complete a wide range of restoration activities on NFS lands. For example, the 

Chequamegon-Nicolet National Forest and the State of Wisconsin executed one of the first agreements using the 

Farm Bill authority and it serves as a model for other states and national forests. This partnership with the Wisconsin 

Department of Natural Resources is carrying out timber sales on 4,000 to 5,000 acres annually and will soon expand 

to include wildlife habitat improvements and other restoration activities funded with timber sale revenue. In FY 

2018, this partnership yielded more than 30 million board feet (mmbf) sold and more than $2.75 million in project 

value, exceeding projections of 25 mmbf and $2 million annually. 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. Another example is where CalFire 

partnered with the Sierra National Forest to treat hazardous fuels conditions caused by the recent drought and 

associated insect mortality for five years. The work includes felling, removal of trees, chipping, masticating, and 

piling, as needed.

Stewardship Contracting

The 2014 Farm Bill permanently extended stewardship contracting authority by amending the Healthy Forest 

Restoration Act of 2003 (16 USC 6591c). The 2018 Omnibus further amended the authority. Details about the 

agency’s stewardship contracting efforts are detailed in a separate special exhibit.

Agriculture Conservation Experienced Services (ACES) Program

The agency’s objective in implementing the ACES program is to expand the agency’s capacity to complete 

conservation work, using it as one of many means to secure resources to mentor unseasoned agency employees and 

to complete priority work. The Forest Service administers the ACES Program through Master Umbrella Agreements 

with two non-profit partners, National Older Worker Career Center and Senior Service America, Inc.

The Forest Service implemented a year-long pilot program in FY 2017 within the Forest Management (FM) staff, 

focusing on the immediate need for additional support, mentoring, and training in positions related to timber sale 

implementation and silviculture. The pilot had an initial investment of $1 million provided by the Washington 

Office (WO) FM staff to jump-start program utilization. As of April 2018, a total of $2 million had been obligated to 

ACES pilot agreements to provide support (approximately 24,000 hours of work) on both the planning and 

implementation of timber sales and forest restoration work in all Regions except Alaska. The ACES pilot included 

58 positions in silviculture, timber sale administration, timber sale accounting, and forestry. Region 6 utilized ACES 

to provide mentorship for new Pathways hires.

Based on the early successes, Forest Service leadership expanded the ACES program in January 2018 prior to pilot 

completion. This expansion enables broader program utilization in FY 2018, providing additional means to expand 

agency capacity in critical program areas. To date, 25 supplemental project agreements have been executed by the 

WO, Job Corps, Pacific Southwest Research Station, and Forests within Regions 2, 4, 5, 6, and 9. ACES enrollees 

are geographically spread across 14 States and over 20 national forests and grasslands. Funding for these positions 

comes from the host unit. Approximately $1.83 million under the national implementation effort has been obligated 

to ACES agreements for the following 52 positions:

 Job Corps Forestry Instructor (1 position)

 Job Corps Natural Resource Liaison (1 position)

 Timber Sale Administration Trainer (11 positions)

 Timber Sales Accounting Resource Specialist Trainer (1 position)
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 Silviculture Technical Services and Mentor (4 positions)

 Forester (1 position)

 Natural Resource Specialist/Planner (2 positions)

 Engineering Technician and Mentor (3 positions)

 Engineer (9 positions)

 Land Surveyor (1 position)

 Research Data Analyst (1 position)

 Realty Specialist (3 positions)

 Mining Reclamation Bond Specialist (1 position)

 Regional Admin Support for Natural Resources (1 position)

 Range Ecologist (2 positions)

 Hydrologist (4 positions)

 Wildlife Technician (1 position)

 Environmental Protection Specialist (1 position)

 Climate Specialist (3 positions)

 Lands Adjustment Trainer (1 position)

More information may be found at: https://www.fs.fed.us/working-with-us/aces-program.
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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 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.

The total cost of wildfire suppression in FY 2018 for the Forest Service was $2.615 billion. Congress had 

appropriated $1.557 billion for suppression. The agency transferred $720.271 million from discretionary and 

mandatory accounts to cover suppression costs after appropriated funds for suppression were exhausted. None of 

this has been repaid.

The following table lists the funds that were not fully repaid from fire transfers that occurred from FY 2002 through 

FY 2018.
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Funds Withdrawn for Transfer for Wildland Fire Suppression and Not Repaid from 2002 to 2018 (dollars in 

thousands)

Appropriation 2002 2003 2006 2007 2008 2009 -

2017 a

2018 b Total

Forest & Rangeland Research - $32 - - - - - $32 

State and Private Forestry - 3,099 - - - - $19,400 22,499

National Forest System $33,000 73,167 - - - - - 106,167 

Capital Improvements and 

Maintenance 25,000 10,305 - - -

-

15,662 50,967

Land Acquisitions - 4,308 $5,000 - - - 40,600 49,908

Wildland Fire Air Tanker 

Reserve

- - - - - - 60,000 60,000

Brush Disposal - 64 - - - - 17,344 17,408

Purchaser Elect - - - - - - 31,100 31,100

Federal Lands Recreation 

Enhancement Fund

- 45 - - - - - 45 

Knutson-Vandenberg - - - - - - 234,500 234,500

Timber Purchaser Election 

Road Construction

- 90 10,000 $20,000 - - - 30,090 

Timber Salvage Sales - 112 - - - - 41,100 41,212

Restoration of Forest Lands 

and Improvements

- - - - $20,000 - 203,365 223,365

Recreation Fee Demo - - - - - - 22,200 22,200

Stewardship Contracting - - - - - - 10,000 10,000

Quarters Maintenance - - - - - - 17,300 17,300

Timber Pipeline Restoration - - - - - - 2,700 2,700

Midewin National Tallgrass - - - - - - 2,900 2,900

Land Between the Lakes - - - - - - 2,100 2,100

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 - 720,271 1,144,340

a From 2009 through 2017, all fire transfers were repaid in full. For 2004 and 2005 there was no need for fire transfers.

b As of the submission of this budget, the 2018 fire transfer repayment has not been received. If full repayment is received, the unpaid amount 

would total $424,069,000 Note: Wildland Fire Preparedness (WFPR, 2002 and 2008) and Forest Land Enhancement Program (FLEP, 2003) 

were not repaid ($133,818 combined), resulting in a true total unpaid amount of $1,010,551,000. FLEP was adopted in the 2002 Farm Bill and 

the Program’s funding authority expired in 2007. In the relevant annual appropriations, Congress has provided the Forest Service the authority to 

transfer available funds for firefighting activities. Funds are repaid to Wildland Fire Management, which includes WFPR.
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FOREST SERVICE BUDGET STRUCTURE REFORM

In accordance with Congressional direction, in FY 2020 the Forest Service proposes to simplify its budget structure 

to improve mission delivery while providing greater financial accountability and operational transparency to Forest 

Service customers, visitors, taxpayers, Congress, and other stakeholders. These changes will enable the agency to be 

more responsive to emergent forest health needs, reduce administrative burdens, and improve the agency’s ability to 

prioritize resources strategically. The proposed budget structure aligns funding with integrated land management 

goals and will lead to more efficient achievement of the agency’s mission.

This budget reform proposal represents a fundamental change in how the agency presents, plans, and executes its 

budget. The proposed plan will modernize the agency’s budget to align with the Shared Stewardship philosophy of a 

cross-boundary, large-landscape approach to the agency’s work. The proposal eliminates the use of Cost Pools and 

consolidates narrow, single-program budget line items (BLI) into landscape-scale, outcome-based funding sources. 

This structure will facilitate more efficiently leveraging all available funding and assets to achieve landscape-scale 

outcomes that contribute to resilient and healthy forests.

Eliminate Cost Pools in Favor of Directly Appropriating All Fixed Costs

In the Consolidated Appropriations Act, 2018 (P.L. 115–141) Congress requested a report on the feasibility of 

restructuring the Forest Service’s budget request (House Report 115-238 page 70). The Committees also noted that 

“the Service has been utilizing Cost Pools to pay for certain costs associated with administrative activities, facilities, 

and other expenses rather than utilizing an ‘administrative account’. As part of continuing efforts to improve 

collaboration in budgeting, the Committees have determined that ending the practice of Cost Pools in favor of more 

direct accounting is in the best interest of the Service and the taxpayer” (Joint Explanatory Statement page 67).

The Forest Service currently receives appropriations by program area, which does not specify the amount that goes 

to salaries and administrative expenses. The Forest Service also does not receive a general administrative or 

management appropriation to cover indirect costs or functions that serve multiple program areas, such as the 

agency’s financial management or USDA Office of General Counsel Services, or the salaries and expenses of Forest 

Service senior leaders. To account for and pay these administrative and fixed costs, the Forest Service worked with 

Congress in 2000 to establish “Cost Pools.” Cost Pools are funded by assessing annual appropriations, permanent 

appropriations and trust fund BLIs to support the underlying programs’ contribution to indirect support and common 

service charges.

The current Cost Pool structure is not directly aligned with how the agency plans or implements its mission. The 

current practice of assessing different BLIs to fund certain costs through Cost Pool results in appropriations that 

over-state available resources to achieve outcomes on the ground and fail to clearly indicate resource allocations for 

indirect activities. This lack of transparency complicates annual budgeting decisions and makes it difficult for 

internal and external stakeholders to tie programmatic outcomes to available resources. The Forest Service is 

proposing a more robust and transparent mechanism to fund fixed costs, including salaries and benefits for all 

agency personnel and indirect and administrative expenses. The agency will then use the remaining discretionary 

funds within each program BLI to fund expenses directly benefiting landscapes and communities.

The proposed budget structure will allow the agency to effectively prioritize, communicate, and provide 

transparency into its fixed costs through a new Treasury account called General Management. The BLIs within this 

account group costs that have a similar purpose and provide a clear view into particular areas of interest such as 

personnel, infrastructure information technology, and capital asset management:

 The Permanent Salary & Benefits BLI contains the base salary and benefits for permanent employees, including 

the costs of health benefits associated with administrative and leadership functions, as well as Unemployment 

Compensation Insurance (UCI) and Workers’ Compensation. This does not include variable costs such as 

employee overtime.

 The Administrative Facility Maintenance & Leases BLI contains costs associated with facility maintenance and 

lease costs for administrative and operational buildings and sites.

 The Information Technology (IT) BLI contains all IT costs, including those costs previously provided in 

Centralized Business Services, as well as field-level IT costs. This BLI does not include the cost of salaries 

associated with agency IT permanent personnel, which instead are funded through the Permanent Salary & 

Benefits BLI.

 The Management Support & Common Services BLI contains support costs needed to execute the Forest Service 

mission. These include the Department costs for general services, utilities, telecommunication, office supplies, 
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office machines, and other common services. The support costs of management, line officers, and 

administrative employees such as for travel and training are also included.

New salary and expenses BLIs will also be established within Wildland Fire and within Landscape Management. 

The latter BLI would include Landscape Management, State and Private Forestry, Capital Improvement and Road 

Maintenance, and Land Acquisition. These BLIs will pay for the base salary and benefits for permanent employees 

associated with the relevant programs of work. The agency will fund temporary employees through program line 

appropriations rather than through these accounts.

Create a New Landscape Management Account

The Forest Service has worked to realign its strategic and programmatic direction to support the broader 

Administration goals of generating jobs and economic benefits, particularly for rural communities, and improving 

the overall health and condition of the Nation’s forests and grasslands. The ability to sustain economic value from 

Forest Service lands, while mitigating the risks of wildfire, is dependent on the agency’s ability to increase active 

management on the ground and achieve landscape-scale outcomes.

Between 2012 and 2017, the Forest Service piloted a landscape approach to budgeting in three regions, which 

allowed these regions to combine certain funds that had been allocated to them for specific purposes. The Integrated 

Resource Restoration (IRR) pilot realigned the agency’s budget structure to consolidate five BLIs into one that 

encompassed integrated watershed protection and landscape-scale restoration. The pilot demonstrated mixed results 

and the agency incorporated the best practices and lessons learned in the development of the new budget structure.

The proposed budget structure will facilitate the efficient delivery of multiple, integrated programs at a landscapescale level by enabling decision makers to direct funds to the highest priority work on the ground. The structure also 

provides the agency with the ability to coordinate efforts across Forest Service organizational levels to be more 

responsive to state and local partner needs.

The Forest Service will create a new appropriations account, Landscape Management, which contains individual 

BLIs from the existing Forest & Rangeland Research, National Forest System (NFS), State and Private Forestry 

(S&PF), and Capital Improvement and Maintenance accounts. The new integrated Landscape Management

appropriation will contain two new—and three existing—standalone BLIs. The new BLIs are Recreation and Public 

Access, and Vegetation, Fuels, and Landscape Management. The agency will retain three existing BLIs: Law 

Enforcement Operations, Collaborative Forest Landscape Restoration (CFLR), and Forest Inventory and Analysis

(FIA). The new structure shifts Law Enforcement and CFLR from the existing NFS appropriations and shifts FIA 

from the existing Forest & Rangeland Research account.

 Recreation and Public Access includes Forest Service activities that serve the public; administer special use 

permits; and provide access to trails, scenic lands, fishable streams, ski areas, wilderness, and other recreational 

areas. This BLI combines the recreation facility maintenance, and the trails from the existing Capital 

Improvement & Maintenance account with the Recreation, Heritage & Wilderness; Land Use Authorization & 

Access BLIs from the NFS account.

 Vegetation, Fuels, and Landscape Management includes Forest Service activities that govern, protect, sustain, 

and monitor the productive use of NFS lands such as fuels mitigation, timber management, grazing, fisheries 

and wildlife habitat improvement, minerals management, and research. This BLI combines funding and 

activities currently in the following BLIs: Forest & Rangeland Research; Forest Health Management - Federal 

Lands; Land Management Planning, Assessment & Monitoring; Wildlife & Fisheries Habitat Management; 

Hazardous Fuels; Grazing Management; Forest Products; Vegetation & Watershed Management; and Minerals 

& Geology Management.

The Forest Legacy Program will maintain a separate Treasury Account due to its dedicated funding structure (Land 

and Water Conservation Fund) and the complexity of land acquisition undertaken with non-federal partners to 

protect environmentally important forest areas that are threatened by conversion to non-forest use.

The State and Private Forestry treasury account would remain and retain the BLIs for Community Forest & Open 

Space Conservation, National Fire Capacity, International Forestry, Urban & Community Forestry, and Rural Fire 

Capacity. The BLIs for Forest Health Management - Coop Lands, Landscape Scale Restoration, and Working Forest 

Lands would be combined under a new BLI called State & Private Assistance, and the Forest Health Management -

Federal Lands BLI would be moved into the new Vegetation, Fuels, and Landscape Management BLI.
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The Capital Improvement and Maintenance treasury account would remain, but the name would be slightly changed 

to Capital Improvement and Road Maintenance. The account would continue to retain the Roads BLI and Facilities 

BLI, but the Facilities BLI would only retain the Facilities Capital Improvement Program (CIP) amount. The 

Administrative Facilities portion is proposed to be moved into the new Administrative Facility Maintenance & 

Leases BLI, and the Recreation Facility Maintenance component is proposed to be moved into the new Recreation 

& Public Access BLI.

The remaining Forest Service treasury account structures for Land Acquisition and Wildfire Management will 

remain the same.

The following table shows a crosswalk for FY 2018 appropriations of the proposed budget restructuring versus the 

existing Forest Service budget structure

Crosswalk for FY 2018 appropriations of the proposed budget restructuring versus the existing budget 

structure

Proposed BLI Name Current BLI 

Name

2018 Enacted 

Budget (After 

Cost Pools)

Historical 

Fixed Costs

Historical 

Discretionary

Dollars

2018 Budget in 

Proposed 

Structure

Proposed Treasury Account Name: General Management

Cost Pool 

$947,430,000 $947,430,000 

Permanent Salary & Benefits

543,955,030 

Administrative Facility Maintenance &

Leases 

190,906,491 

Information Technology (IT)

362,989,000 

Mgmt Support & Common Services 

175,389,234 

General Management Total

947,430,000 947,430,000 1,273,239,755 

Proposed Treasury Account Name: Landscape Management

Permanent Salary & Benefits

1,285,119,773 

Law Enforcement Operations 

112,099,260 72,120,110 39,979,150 39,979,150 

Recreation & Public Access

Proposed

133,782,287 

Land Ownership 

Management 

55,051,400 38,090,574 16,960,826 

Recreation, 

Heritage and 

Wilderness

177,316,450 121,351,479 55,964,971 

Trails

57,261,680 28,224,853 29,036,827 

Recreation & Public Access Total

289,629,530 187,666,907 101,962,623 133,782,287 

Collaborative Forest Landscape Restoration 

30,525,700 11,676,765 18,848,935 18,848,935 

Forest Inventory and Analysis 

67,174,250 44,429,713 22,744,537 22,744,537 
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Proposed BLI Name Current BLI Name

2018 Enacted 

Budget (After 

Cost Pools)

Historical 

Fixed Costs

Historical 

Discretionary

Dollars

2018 Budget in 

Proposed 

Structure

Vegetation, Fuels & Landscape 

Management Proposed

478,563,212 

Forest & Rangeland 

Research

190,981,120 138,666,713 52,314,407 

Hazardous Fuels 

Reduction a

358,366,552 148,861,793 209,504,759 

Minerals and 

Geology 

Management

57,146,260 35,747,358 21,398,902 

Land Management 

Planning, 

Assessment & 

Monitoring

141,365,800 114,757,572 26,608,228 

Grazing 

Management

40,749,690 29,022,681 11,727,009 

Forest Products

267,603,409 202,159,009 65,444,400 

Vegetation & 

Watershed 

Management

140,592,886 95,413,569 45,179,317 

Wildlife & Fisheries 

Habitat 

Management

102,582,732 74,233,873 28,348,859 

Forest Health -

Federal Lands

45,078,270 27,040,939 18,037,331 

Vegetation, Fuels & Landscape Management Total 1,344,466,719 865,903,507 478,563,212 478,563,212

Landscape Management Total 1,843,895,459 1,181,797,002 662,098,457 1,979,037,894 
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Proposed Treasury Account Name: Forest Legacy

Proposed BLI Name

Current BLI 

Name

2018 Enacted 

Budget (After 

Cost Pools)

Historical 

Fixed Costs

Historical 

Discretionary

Dollars

2018 Budget in 

Proposed 

Structure

Forest Legacy

Proposed

63,364,049 

Forest Legacy

60,625,000 60,625,000 

Legacy Program 

Administration

5,452,570 2,811,112 2,641,458 

Forest Legacy Total

66,077,570 2,811,112 63,266,459 63,364,049 

66,077,570 2,811,112 63,266,459 63,364,049 

Proposed Treasury Account Name: State and Private Forestry

Community Forest & Open Space Conservation 

4,000,000 4,000,000 4,000,000 

National Fire Capacity

78,105,140 5,796,038 72,309,102 72,309,102 

International Forestry 

8,052,570 4,435,749 3,616,821 3,616,821 

Urban & Community Forestry 

26,605,140 5,102,573 21,502,567 21,502,567 

Rural Fire Capacity

16,000,000 6,924 15,993,076 15,993,076 

State & Private Assistance

Proposed

58,129,614 

Forest Health 

Cooperative 

Lands

38,157,710 7,299,506 30,858,204 

Landscape Scale 

Restoration

14,000,000 86,419 13,913,581 

Working Forest 

Lands

18,605,140 5,247,311 13,357,829 

State & Private Assistance Total

70,762,850 12,633,236 58,129,614 58,129,614 

203,525,700 27,974,520 175,551,180 175,551,180 

Proposed Treasury Account Name: Capital Improvement and Road Maintenance

Facilities b(CIP only)

135,841,120 104,021,456 31,819,664 

Roads 

177,055,421 94,624,135 82,431,286 82,431,286 

Capital Improvement and Road Maintenance Total 312,896,541 198,645,590 114,250,951 82,431,286 
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Proposed Treasury Account Name: Land Acquisition

Land Acquisition

Proposed

58,055,385 

Acquisition 

Management

5,457,140 4,230,256 1,226,884 

Cash 

Equalization

250,000 250,000 

Critical 

Inholdings

2,000,000 2,000,000 

Land Acquisition

50,035,000 156,499 49,878,501 

Recreation 

Access

4,700,000 4,700,000 

Land Acquisition Total c

62,442,140 4,386,755 58,055,385 58,055,385 

Proposed Treasury Account Name: Wildland Fire Management

Permanent Salary & Benefits

549,206,643 

Fire Preparedness 

1,082,872,780 627,568,910 455,303,870 455,303,870 

Fire Suppression 

1,456,390,420 117,049,872 1,339,340,548 1,339,340,548 

Wildland Fire Management Total

2,539,263,200 744,618,782 1,794,644,418 2,343,851,061 

Grand Total d

$5,975,530,610 $3,107,663,761 $2,867,866,849 $5,975,530,610 

a Calculation of how amounts are derived:

FY2018 Enacted Budget $430 - Cost Pools $71.6 = $358.4 Available for Allocation

FY2018 Available Allocation $358.4 - Proposed Fixed Costs $148.9 = $209.5 Available for Natural Resource Stewardship BLI

b Facilities is being split three ways in the proposal: administrative facility maintenance, recreation facility maintenance and CIP

c Land Acquisition does not include: Acquisition of Land for National Forest Special Acts and Acquisition of Lands to Complete Land 

Exchanges

d The FY 2018 total includes $25.6 million in Permanent and Trust fund contributions to cost pools. It does not include $5.7 million in other 

funds that are not affected by the Budget Reform proposal (USFS Acquisition Of Lands Special Act; Land Exchange; Gifts, Donations, & 

Bequests for Research; Range Betterment Fund; Subsistence Management - Alaska).
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PROPOSED APPROPRIATIONS LANGUAGE TO IMPLEMENT THE NEW BUDGET STRUCTURE

(Headnote numbers were added for readability and will be removed before finalizing)

GENERAL MANAGEMENT

(INCLUDING TRANSFER OF FUNDS)

For necessary expenses of the Forest Service, not otherwise provided for, $X,XXX,XXX,XXX, to remain available 

through September 30, 2023,

[1] for the base salary and expenses of permanent employees carrying out administrative and general management 

support functions, in an amount not to exceed $X,XXX,XXX,

[2] for the costs of facility maintenance, repairs, and leases for buildings and sites where these support functions 

take place,

[3] for the costs of

[A] all utility and telecommunication expenses of the Forest Service,

[B] business services, and

[C] leadership and executive direction of the Forest Service, including legislative and public 

communications, and

[4] for information technology including cyber security requirements:

[1] Provided, That funds provided under this heading may be used for necessary administrative support function 

expenses of the Forest Service not otherwise provided for and necessary for its operation:

[2] Provided further, That funds appropriated to this account may be transferred to any other Forest Service account 

and funds appropriated to any other Forest Service account may be transferred to this account if the transfers do not 

increase or decrease the funds appropriated for this fiscal year in any account by more than 10 percent:

[3] Provided further, That any balances available in Forest Service accounts from prior years for the expenses 

included in this account, and any funding for expenses under this heading that are authorized to be paid by Forest 

Service trust funds, shall be transferred to and merged with this account.

LANDSCAPE MANAGEMENT

(INCLUDING TRANSFER OF FUNDS)

For the necessary expenses of the Forest Service, not otherwise provided for, $X,XXX,XXX,XXX to be available 

through September 30, 2023,

[1] for the management, protection, and improvement, and utilization of the National Forest System,

[2] for hazardous fuels management on or adjacent to such lands, and

[3] for the base salary and expenses for employees directly engaged in these activities and for activities not covered 

under the headings for General Management and Wildland Fire Management, not including the costs of any 

overtime or temporary employees needed to carry out these activities, in an amount not to exceed 

$X,XXX,XXX,XXX,:

[1] [From NFS:] Provided, That of the funds provided under this heading, shall be available for hazardous fuels 

management activities, of which not to exceed $XX,XXX,XXX 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:

[2] [From NFS:] Provided further, That of the funds provided under this heading, up to $XX,XXX,XXX 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:
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[3] Provided further, That of the funds provided, $XX,XXX,XXX shall be deposited in the Collaborative Forest 

Landscape Restoration Fund for ecological restoration treatments as authorized by 16 U.S.C. 7303(f):

[4] [From NFS] Provided further, That funds made available to implement the Community Forestry Restoration Act, 

Public Law 106–393, title VI, shall be available for use on non-Federal lands:

[5] Provided further, That notwithstanding section 33 of the Bankhead Jones Farm Tenant Act (7 U.S.C. 1012), the 

Secretary of Agriculture, in calculating a fee for grazing on a National Grassland, may provide a credit of up to 50 

percent of the calculated fee to a Grazing Association or direct permittee for a conservation practice approved by the 

Secretary in advance of the fiscal year in which the cost of the conservation practice is incurred and the amount 

credited shall remain available to the Grazing Association or the direct permittee, as appropriate, in the fiscal year in 

which the credit is made and each fiscal year thereafter for use on the project for conservation practices approved by 

the Secretary:

[6] Provided further, That any balances available in Forest Service accounts from prior years for the expenses 

included in this account, and any funding for expenses under this heading that are authorized to be paid by Forest 

Service trust funds, shall be transferred to and merged with this account.

STATE AND PRIVATE FORESTRY

For necessary expenses of

[1] cooperating with and providing technical and financial assistance to States, territories, possessions, and others, 

and

[2] conducting an international program as authorized,

$XXX,XXX,XXX, to remain available through September 30, 2023, as authorized by law:

[1] Provided, That such funds shall include assistance to state and private entities for landscape scale restoration, 

working forest lands and forest health management on non-federal lands, 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 as authorized:

[2] Provided further, That of the funds provided under this heading, $XX,XXX,XXX is for National Fire Capacity, 

and $XX,XXX,XXX is for Rural Fire Capacity under section 10 of the Cooperative Forestry Assistance Act of 1978 

(16 U.S.C. 2106);

[3] Provided further, that funding for activities carried out under this heading that are authorized to be paid by 

Forest Service trust funds shall be transferred to and merged with this appropriation:

For the Forest Legacy Program, $XX,XXX,XXX, to be derived from the Land and Water Conservation Fund, to 

remain available until expended:

[1] Provided, That no amounts may be rescinded from amounts that were designated by the Congress as an 

emergency requirement pursuant to the Concurrent Resolution on the Budget or the Balanced Budget and 

Emergency Deficit Control Act of 1985.

CAPITAL IMPROVEMENT AND MAINTENANCE

(INCLUDING TRANSFER OF FUNDS)

For necessary expenses of the Forest Service, not otherwise provided for, $XX,XXX,XXX, to remain available 

through September 30, 2023,

[1] for construction, capital improvement, maintenance and acquisition of buildings and other facilities and 

infrastructure other than recreation facilities and trails, and

[2] for construction, reconstruction, decommissioning of roads that are no longer needed, including unauthorized 

roads that are not part of the transportation system, as authorized by 16 U.S.C. 532–538 and 23 U.S.C. 101 and 205:
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[1] Provided, That funds becoming available in fiscal year 2020 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:

[2] Provided further, that funding for activities carried out under this heading that are authorized to be paid by 

Forest Service trust funds shall be transferred to and merged with this appropriation.

WILDLAND FIRE MANAGEMENT

(INCLUDING TRANSFER OF FUNDS)

For necessary expenses, not otherwise provided for, $X,XXX,XXX,XXX to remain available through September 30, 

2023

[1] for forest fire pre-suppression activities on National Forest System lands,

[2] for emergency wildland fire suppression on or adjacent to such lands or other lands under fire protection 

agreement,

[3] for emergency rehabilitation of burned over National Forest System lands and water, and

[4] for the base salary and expenses for employees directly engaged in these activities not otherwise provided for, 

not including the costs of any overtime or temporary employees needed to carry out these activities, in an amount 

not to exceed $X,XXX,XXX,XXX:

[1] 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:

[2] Provided further, That any unobligated funds appropriated in a previous fiscal year for hazardous fuels 

management may be transferred to the "Landscape Management" account:

[3] 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:

[4] 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:

[5] 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.

RANGE BETTERMENT FUND

For necessary expenses of range rehabilitation, protection, and improvement, 50 percent of all moneys received 

during the prior fiscal year, as fees for grazing domestic livestock on lands in National Forests in the 16 Western 

States, pursuant to section 401(b)(1) of Public Law 94–579, to remain available through September 30, 2023, of 

which not to exceed 6 percent shall be available for administrative expenses associated with on-the-ground range 

rehabilitation, protection, and improvements.

MANAGEMENT OF NATIONAL FOREST LANDS FOR SUBSISTENCE USES

For necessary expenses of the Forest Service to manage Federal lands in Alaska for subsistence uses under title VIII 

of the Alaska National Interest Lands Conservation Act (Public Law 96–487), $X,XXX,000, to remain available 

through September 30, 2023.

LAND ACQUISITION

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, $XX,XXX,XXX, to be derived from the Land and Water Conservation

Fund and to remain available until expended.
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ACQUISITION OF LANDS FOR NATIONAL FORESTS SPECIAL ACTS

For acquisition of lands within the exterior boundaries of the Cache, Uinta, and Wasatch National Forests, Utah; the 

Toiyabe National Forest, Nevada; the Angeles, San Bernardino, Sequoia, and Cleveland National Forests, 

California; and the Ozark and Ouachita National Forests, Arkansas, as authorized by law, $XXX,XXX to be derived 

from forest receipts.

ACQUISITION OF LANDS TO COMPLETE LAND EXCHANGES

For acquisition of lands, such sums, to be derived from funds deposited by State, county, or municipal governments, 

public school districts, or other public school authorities, and for authorized expenditures from funds deposited by 

non-Federal parties pursuant to Land Sale and Exchange Acts, pursuant to the Act of December 4, 1967 (16 U.S.C. 

484a), to remain available through September 30, 2023 (16 U.S.C. 516–617a, 555a; Public Law 96–586; Public Law 

76–589, 76–591; and Public Law 78–310.

ADMINISTRATIVE PROVISIONS—FOREST SERVICE (INCLUDING TRANSFERS OF FUNDS)

Appropriations to the Forest Service for the current fiscal year shall be available for: (1) purchase of passenger 

motor vehicles; acquisition of passenger motor vehicles from excess sources, and hire of such vehicles; purchase, 

lease, operation, maintenance, and acquisition of aircraft 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).

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 heading "Wildland 

Fire Management" will be obligated within 30 days.

Notwithstanding any other provision of this Act, the Forest Service may transfer funds appropriated to the Forest 

Service by this Act to or within the "Landscape Management" account for the purposes of hazardous fuels 

management and emergency rehabilitation of burned-over National Forest System lands and water: Provided, That 

such transferred funds shall remain available through September 30, 2023: Provided further, That none of the funds 

transferred pursuant to this section shall be available for obligation without written notification to and the prior 

approval of the Committees on Appropriations of both Houses of Congress.

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.

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.

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–

171 (7 U.S.C. 8316(b)).
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None of the funds available to the Forest Service may be reprogrammed without the advance notification to the 

House and Senate Committees on Appropriations in accordance with the reprogramming procedures contained in 

the explanatory statement accompanying this Act.

Not more than $XX,XXX,XXX of funds available to the Forest Service shall be transferred to the Working Capital 

Fund of the Department of Agriculture and not more than $XX,XXX,XXX 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 information technology services from the Department of 

Agriculture's [National Information Technology Center and the Department of Agriculture's International 

Technology Service] financed by the Department’s Working Capital Fund, including telecommunications and 

system modifications or enhancements.

Of the funds available to the Forest Service, up to $X,XXX,XXX 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.

Of the funds available to the Forest Service, $X,XXX is available to the Chief of the Forest Service for official 

reception and representation expenses.

Pursuant to sections 405(b) and 410(b) of Public Law 101–593, of the funds available to the Forest Service, up to 

$X,XXX,XXX 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 $XXX,XXX 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: 

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.

Pursuant to section 2(b)(2) of Public Law 98–244, up to $X,XXX,XXX 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.

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.

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.

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)).

Notwithstanding any other provision of law, of any appropriations or funds available to the Forest Service, not to 

exceed $XXX,XXX 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 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 sums requested for transfer.

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.
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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

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 

Appalachian Trail is managed in partnership with the National Park Service (NPS). 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), State and county governments, and private partners. Funding for administration and management 

of these trails is included within the Capital Improvement and Maintenance Trails appropriation. Trail land 

acquisition is funded under the Land Acquisition appropriation.

Appalachian National Scenic Trail (AT)

This 2,190-mile footpath crosses the Appalachian Mountains from Mt. Katahdin in Maine to Springer Mountain in 

northern Georgia, crossing through both the Southern and Eastern Regions of the Forest Service. The trail is 

protected along more than 99 percent of its course. The partnership that works to manage AT is comprised of the 

Forest Service, NPS, the Appalachian Trail Conservancy, with the volunteer assistance of 31 Appalachian Trail

Clubs, and other organizations. In FY 2018, the AT was maintained in a safe status for visitors along its entire length 

in both the Forest Service Southern Region and Eastern Region, with over 2,400 volunteers contributing nearly

79,000 hours of trail maintenance and repair. Catalyzed by the 50th Anniversary of the National Trails System and 

commemorating the 50th anniversary of the designation of the Appalachian Trail in 2018, numerous multi-partner 

and local community stewardship events took place across the trail throughout the year. Achievements on NFS lands 

included the completion of multi-year relocation projects at High Cock Knob and Brown Fork Gap, the replacement 

of the Straight Branch Bridge, and the engagement of volunteers on the Crawford Path portion of the AT, along with 

the completion on the Green Mountain National Forest visitor facilities at the Clarendon Shelter.

Arizona National Scenic Trail (AZNST)

This 800-mile trail traverses Arizona’s diverse landscapes while providing important economic opportunities for

nearby gateway communities. Eighty-five percent of the AZNST is located on Federal land, including four national 

forests, two Bureau of Land Management (BLM) field offices, and four NPS units, including the Grand Canyon. 

Partners include the Arizona Trail Association, Federal, State, and local governments, Tribes, youth corps, and other 

non-governmental organizations. In FY 2018, over 2,300 volunteers contributed a total of 23,158 hours of work in 

support of the trail. In addition to trail maintenance and construction, volunteers installed 12 “super gates” that resist 

vandalism and are hiker and horse friendly, 7 log fences, and 2 large bridges. Volunteers were taught skills in

stewarding responsibilities, volunteer management, sustainable trail design, and trail construction and maintenance 

in a series of training events held by the Arizona Trail Association (ATA) in partnership with American 

Conservation Experience. Five Ancestral Lands crews partnered with the Tonto National Forest and the ATA to 

restore two critical springs by cleaning them out and rebuilding a rock retaining wall. Dozens of youth corps 

participants did maintenance work on the AZT. The successful Seeds of Stewardship program that benefits 2,500 

children each year continues to get kids out of the classroom and on the trail to learn about ecosystems and history 

while developing stewardship skills and fulfilling school curriculum requirements

Continental Divide National Scenic Trail (CDT)

The 3,100-mile CDT runs along the spine of the Rocky Mountains from Mexico to Canada. It connects 20 national 

forests, three national parks, one national monument, 13 BLM field offices, and historic sites. About 90 percent of 

the trail is located on public lands; however, many trail segments are currently co-located along open roads or 

motorized trails. Easements are lacking across numerous parcels of private and State land and are needed to secure a 

continuous route for permanent public use.
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Partners include the 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. In FY 2018, the Forest Service worked with several youth corps organizations to engage youth in 

outdoor stewardship and accomplish critical trail maintenance work. The agency participated in numerous events 

celebrating the 50th Anniversary of the National Trail System Act in 2018. The Forest Service also worked with 

Leave No Trace on a week-long Hot Spot event on the Monarch Crest portion of the trail and established a 

relationship with the Trapper Creek Job Corps Center in Montana to start producing wooden routed CDT markers to 

be used in Wilderness areas along the trail. The Continental Divide Trail Coalition (CDTC) initiated an effort called 

Blaze the CDT, in which they recruited 170 volunteers to mark the trail at trailheads and road and trail crossings.

Florida National Scenic Trail (FNST)

The FNST consists of a 1,500-mile planning corridor stretching from Big Cypress National Preserve in the 

Everglades to Gulf Islands National Seashore in the panhandle of Florida. There are 1,097 miles of certified FNST 

on the ground and roughly 300 miles of gaps exists within the trail. Partners include the Florida Trail Association, 

Framing Our Community, NPS, the U.S. Fish and Wildlife Service, Florida Forest Service, Florida State Parks, and 

other organizations. In FY 2018, volunteers maintained 100 percent of the FNST, contributing nearly 25,000 hours. 

The Forest Service updated the 5-Year Strategic Plan for the Florida Trail and hosted a Public Land Corps-eligible

intern assisting with the planning and implementation of the 5-year plan. In partnership with two non-profit partners 

and Department of Defense Air Force, the agency also completed a bridge closing over 9 miles of gaps. Successfully 

adding three new land management partners and 16 miles of designated trail, the FNST continues to improve routing 

and protection throughout the State for a safer and more scenic experience.

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. With the cooperation of the State Highway Department and County Commissioners in the States of 

Oregon, Washington, Idaho, Wyoming, and Montana, over 2,991 miles of 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 and offers opportunities for off-highway vehicles, biking, and snowmobile use. The NPNHT has 79 historic 

sites to be managed and seven 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.

Partners include 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. A new exhibit, “The 

Journey of the Resilient Nez Perce People,” is designed to travel to other communities along the trail. In FY 2018 on 

the Lolo National Forest, staff treated invasive plants to preserve the trail’s natural condition, cleared 87 trees from 

the trail, and maintained 215 markers and travel management signs.

Pacific Crest National Scenic Trail (PCT)

This 2,650-mile trail follows the crest of the Sierra Nevada and Cascade Mountain ranges from Mexico to Canada

through California, Oregon, and Washington. The trail crosses 25 national forests; seven BLM field offices; six NPS

units; five national monuments; and 48 designated wilderness areas. Over half of the PCT is in designated 

Wilderness and nine Wild and Scenic Rivers cross its path. Partners include the Pacific Crest Trail Association 

(PCTA), American Conservation Experience (ACE), Washington Trails Association, Pacific Northwest Trail

Association, California Conservation Corps, Northwest Youth Corps, Washington Conservation Corps, Oregon 

Equestrian Trails, Backcountry Horsemen of California, Oregon, Washington, and many other organizations.

In celebration of the 50th anniversary of the PCT in 2018, many community events were held along the trail 

including Mt. Shasta, California and Cascade Locks, Oregon. The Forest Service and the Pacific Crest Trail 

Association worked with local elected leaders to commemorate the city of Mount Shasta as the PCT’s first official 

“Trail Town” and to support “PCT Days” in Cascade Locks. In the first of its kind, the Girl Scouts Heart of Central 

California hosted a virtual 50th celebration of the PCT’s anniversary in conjunction with PCTA and the Appalachian 

Trail Conservancy.

PCTA’s volunteer trail maintenance and construction efforts focused in areas where fire and floods/mudslides have 

closed the trail. In order to ensure volunteers are well trained, PCTA hosted 61 training events reaching over 1,000

participants. The Mt. Hood Chapter volunteers spearheaded a Gorge Trail Recovery Team and sponsored 120 work 

parties spending 10,600 hours clearing logs and restoring burned trail tread in the Columbia Gorge National Scenic 
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Area. PCTA (Trail Gorillas) and ACE worked with the San Bernardino National Forest to finish reconstruction and 

reopen the 6 miles of trail that had been closed since 2014. International cooperation was paramount, as Canada 

Parks assisted PCTA volunteers with the installation of a new northern terminus monument that weighed over 1,000 

pounds at the US/Canadian border. Trail realignment and relocation to more sustainable and optimal locations 

occurred with the support of donor-sponsored youth corps crews in the Tahoe and Deschutes National Forests. The 

Forest Service and PCTA partnered with the Aldo Leopold Wilderness Research Institute, Virginia Tech, Applied 

Trails Research, and NPS’s Visitor Use Management team on visitor use monitoring and management. The Forest 

Service and PCTA also formalized “Working with Minors” policy for volunteers under 18 years old and focused on 

connecting youth to the trail and the outdoors with a variety of 21st Century Youth Corps (ACE), the Environmental 

Charter High School (LA), NAACP Vancouver Youth, and Alternative Spring Break College Programs.

Pacific Northwest National Scenic Trail (PNNST)

The PNNST begins at the Continental Divide in Glacier National Park in Montana and travels 1,200 miles through 

Montana, Idaho, and Washington before reaching the Pacific Ocean. The trail’s complex land ownership includes 

three national parks, seven national forests, six Washington State Parks, and other lands. Partners include the Pacific 

Northwest Trail Association (PNTA); Backcountry Horsemen of Washington, Idaho, and Montana; Washington 

Trails Association; Student Conservation Association; University of Montana; Western Washington University; and 

other organizations. In FY 2018, volunteers from the PNTA performed over 15,400 hours of maintenance, a value of 

over $375,000. Together, the Forest Service and partners maintained 340 miles of trail and improved 15 miles. 

PNTA raised over $100,000 in non-Federal funds for stewardship of the PNNST.

The Forest Service and PNTA collaborated to make great improvements to visitor information in 2018. PNTA 

launched a mobile app featuring georeferenced maps of the entire trail with real-time updates of current conditions 

and fire danger. PNTA also launched a new website that provides in-depth resources for enjoying the PNNST safely 

and responsibly.

The PNNST program is partnering with the University of Montana’s College of Forestry and Conservation to study 

visitor use of the PNNST and adjacent trails in Northwest Montana. The second year of data was collected in 2018 

by trail counters, cameras, and hikers. In addition to this data, 25 PNNST thru-hikers participated in the study by 

recording GPS tracks of the first 300 miles of their trip. In collaboration with the U.S. Fish and Wildlife Service, the 

University will use this data to evaluate the potential for interactions between thru-hikers and grizzly bears and will 

provide baseline information to help establish the legislatively-required carrying capacity for the PNNST 

Comprehensive Plan.

Other National Scenic and Historic Trails (NSHT)

The Forest Service coordinates management with other Federal public land agencies for an additional 15 national 

scenic and historic trails totaling over 6,700 miles. 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.
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Funding for National Scenic and Historic Trails (dollars in thousands)

2018 Actual 2019 Estimate 2020 Budget

Name Trails Land Acq. Sub-total Trails Land Acq. Sub-total Trails Land Acq. Sub-total

Appalachian $280 $820 $1,100 $280 $820 $1,100 $280 - $280

Arizona 492 - 492 492 - 492 492 - 492

Continental 

Divide

1,675 - 1,675 1,675 - 1,675 1,675 - 1,675

Florida 1,300 - 1,300 1,300 - 1,300 1,300 - 1,300

Nez Perce 800 520 1,320 800 520 1,320 800 - 800

Pacific Crest 1,827 3,200 5,027 1,827 3,200 5,027 1,827 - 1,827

Pacific Northwest 836 - 836 836 - 836 836 - 836

All-others 700 2,700 3,400 700 2,700 3,400 700 - 700

Total 7,910 7,240 15,150 7,910 7,240 15,150 7,910 - 7,910

FY 2018 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 78,694 $1,942,955 $20,720 1185 3 1428 3

Arizona 23,158 583,928 72,010 110 8 - 21

Continental 

Divide

47,500 1,233,575 - 1350 36 132 25

Florida 24,494 604,757 50,500 1,263 24 - 1

Nez Perce 24,000 600,000 44,000 910 90 900 15

Pacific Crest 104,449 2,578,850 33,470 1,641 29.5 2,138 3

Pacific Northwest 15,200 375,288 500 340 15 - 1

Total 317,495 7,919,353 221,200 6,799 2,055 4,598 69
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

192

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 table below reflects billings received to date.

Office of General Counsel Reimbursement FY 2017 to FY 2020

2017 Actual

Reimbursement

2018 As of

Oct 23,2018

2019 Planned

Reimbursement

2020 Planned

Reimbursement

$5,595 $10,681 $15,000 $15,000
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

193

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. Allocations are agency 

administrative divisions of apportionments and are used to monitor financial status and prevent deficiency.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

194

FY 2016 to FY 2018 Region, Station, and Area Allocations for Region 1 (Northern Region) and Region 2 

(Rocky Mountain Region) (dollars in thousands)

Region 1 (Northern Region) Region 2 (Rocky Mountain Region)

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities...................................................... $ 2,935 $5,235 $3,356 $4,786 $4,800 $4,723

Infrastructure Improvement ........................ - - - - - -

Legacy Roads and Trails............................. - - - 2,699 2,750 -

Roads.......................................................... 13,188 13,217 17,947 15,442 16,653 20,713

Trails........................................................... 8,613 8,769 8,118 6,550 6,726 5,970

Capital Improvement & Maintenance 

Total.................................................. 24,736 27,221 29,421 29,477 30,929 31,406

Forest and Rangeland Research

Forest & Rangeland Research..................... - - - 40 - -

Forest & Rangeland Research – FIA........... - - - - - -

R&D Forest Products Lab........................... - - - - - -

Forest and Rangeland Research Total . - - - 40 - -

Land Acquisition

Acquisition of Lands for National Forests, 

Special Acts.......................................... - - - - - -

Complete Land Exchanges.......................... - - - - - -

Land Acquisition -- Land and Water 

Conservation Fund................................ 565 4,000 - 622 - -

Land Acquisition - Acq Mgmt .................... - 548 476 - 577 510

Land Acquisition - Cash Equalization......... - - - - - -

Land - Critical Inholding............................. - - - - - -

Land Acquisition - Rec Access................... - - 142 - - -

Land Acquisition Total.......................... 565 4,548 618 622 577 510

National Forest System

Collaborative Forest Landscape Restoration 4,845 5,170 5,739 2,535 2,705 2,846

Forest Products ........................................... - - 28,256 24,969 21,945 23,821

Grazing Management.................................. 5,475 5,499 5,070 7,355 7,357 7,264

Hazardous Fuels.......................................... - - 24,174 - - 24,946

Integrated Resource Restoration ................. 60,666 64,215 - - - -

Inventory and Monitoring ........................... 9,151 - - 7,638 - -

Land Management Planning ....................... 2,906 - - 1,389 - -

Land Use Authorization and Access........... 4,777 4,825 4,766 6,024 5,897 5,753

Law Enforcement Operations ..................... - - - - - -

Minerals and Geology Management ........... 7,337 8,520 7,718 7,446 7,475 7,555

Recreation, Heritage, and Wilderness......... 12,454 12,283 11,571 19,266 19,455 17,825

Valles Caldera National Preserve................ - - - - - -

Vegetation and Watershed Management..... - - 14,846 10,726 12,238 11,509

Wildlife and Fisheries Habitat Management - - 9,343 8,151 7,830 7,570

Land Management Planning, Assessment 

and Monitoring ..................................... - 11,286 11,060 - 9,114 8,597

Hazardous Fuels- Biomass.......................... - - 600 - - 593

National Forest System Total................ 107,611 111,798 123,143 95,499 94,016 118,279
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

195

Region 1 (Northern Region) Region 2 (Rocky Mountain Region)

Funds and Programs 2016 2017 2018 2016 2017 2018

State & Private Forestry

Community Forest & Open Space 

Conservation......................................... - - - - - -

Forest Health Management - Cooperative 

Lands.................................................... 942 1,104 1,244 1,678 1,485 16,653

Forest Health Management - Federal Lands 3,470 3,167 2,353 3,189 3,022 2,350

Forest Legacy Program............................... 10,020 7,000 4,000 320 - 6,000

Working Forest Lands................................. 585 544 515 1,139 1,023 992

International Forestry.................................. - - - - - -

Landscape Scale Restoration....................... - - 918 7 - 900

National Fire Capacity ................................ - - 300 - - 500

Urban and Community Forestry.................. 744 746 715 1,760 1,569 1,634

Rural Fire Capacity..................................... - - 1,025 - - 1,531

Cooperative Forestry - Forest Legacy 

Program Admin .................................... - 243 237 - 332 280

State & Private Forestry Total ............. 15,761 12,804 11,307 8,093 7,431 30,840

Wildland Fire Management

Coop Fire Protection-National Fire Capacity 6,570 3,411 - 6,474 3,519 -

Coop Fire Protection- Rural Fire Capacity.. 823 1,004 - 1,398 1,583 -

Fire Operations – Suppression .................... - - - - - -

Fire Preparedness........................................ 51,468 51,258 69,898 25,202 26,858 39,431

Fire Research and Development (NFP)....... - - - - - -

Hazardous Fuels.......................................... 13,945 19,617 - 22,217 26,359 -

Joint Fire Sciences ...................................... - - - - - -

Wildland Fire Management - HazFuels -

Biomass Grants..................................... - - - - - -

Wildland Fire Management Total ........ 72,806 75,290 69,898 55,291 58,318 39,431

Cost Pool Allocations..................................... 39,367 39,127 39,660 35,185 35,328 36,011

Range Betterment Fund.................................. - - - - - -

Gifts, Donations, & Bequests for Research .... - - - - - -

Mgmt of NF Lands for Subsistence Uses....... - - - - - -

Grand Total............................................... 260,846 270,788 274,047 224,207 226,599 256,477
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

196

FY 2016 to FY 2018 Region, Station, and Area Allocations for Region 3 (Southwest Region) and Region 4 

(Intermountain Region) (dollars in thousands)

Region 3 (Southwestern Region) Region 4 (Intermountain Region) 

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities...................................................... $3,979 $4,273 $4,418 $4,325 $4,164 $4,415

Infrastructure Improvement ........................ - - - - - -

Legacy Roads and Trails............................. - - - - - -

Roads.......................................................... 14,050 14,091 17,051 12,934 12,840 17,268

Trails........................................................... 3,424 3,354 2,946 6,606 6,260 5,767

Capital Improvement & Maintenance 

Total.................................................. 21,453 21,718 24,415 23,865 23,264 23,035

Forest and Rangeland Research

Forest & Rangeland Research..................... - - - - - -

Forest & Rangeland Research – FIA........... - - - - - -

R&D Forest Products Lab........................... - - - - - -

Forest and Rangeland Research Total . - - - - - -

Land Acquisition

Acquisition of Lands for National Forests, 

Special Acts.......................................... - - - 317 - -

Complete Land Exchanges.......................... - - - - - -

Land Acquisition -- Land and Water 

Conservation Fund................................ 268 - - 562 - -

Land Acquisition - Acq Mgmt .................... - 209 - - 527 -

Land Acquisition - Cash Equalization......... - - - - - -

Land - Critical Inholding............................. - - - - - -

Land Acquisition - Rec Access................... - - - - - -

Land Acquisition Total.......................... 268 209 - 879 527 -

National Forest System

Collaborative Forest Landscape Restoration 4,535 4,839 5,338 2,035 2,172 2,396

Forest Products ........................................... - - 15,236 - - 13,090

Grazing Management.................................. 8,265 8,139 7,811 8,769 8,709 9,144

Hazardous Fuels.......................................... - - 49,450 - - 30,746

Integrated Resource Restoration ................. 45,679 45,365 - 48,977 48,139 -

Inventory and Monitoring ........................... 7,154 - - 10,125 - -

Land Management Planning ....................... 4,403 - - 1,027 - -

Land Use Authorization and Access........... 4,197 4,082 3,949 5,195 5,004 4,851

Law Enforcement Operations ..................... - - - - - -

Minerals and Geology Management ........... 5,772 5,866 5,475 8,399 8,438 7,299

Recreation, Heritage, and Wilderness......... 16,939 16,807 15,765 20,180 20,317 18,524

Valles Caldera National Preserve................ - - - - - -

Vegetation and Watershed Management..... - - 8,926 - 95 14,041

Wildlife and Fisheries Habitat Management 8 - 8,420 - - 8,580

Land Management Planning, Assessment 

and Monitoring ..................................... - 10,371 9,303 - 11,916 12,054

Hazardous Fuels- Biomass.......................... - - 483 - - 100

National Forest System Total................ 96,952 95,469 130,156 104,707 104,790 120,825
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

197

Region 3 (Southwestern Region) Region 4 (Intermountain Region) 

Funds and Programs 2016 2017 2018 2016 2017 2018

State & Private Forestry

Community Forest & Open Space 

Conservation......................................... - - - - - -

Economic Action Program.......................... - - - - - -

Forest Health Management - Cooperative 

Lands.................................................... 857 963 1,007 760 871 1,035

Forest Health Management - Federal Lands 1,659 1,499 1,106 2,771 2,501 1,816

Forest Legacy Program............................... 125 3,480 710 2,792 2,929 3,000

Working Forest Lands................................. 510 443 400 396 386 355

International Forestry.................................. - - - - - -

Landscape Scale Restoration....................... - - 300 - - 300

National Fire Capacity ................................ - - 200 - - 200

Urban and Community Forestry.................. 708 711 613 660 665 570

Rural Fire Capacity..................................... - - 927 - - 376

Cooperative Forestry - Forest Legacy 

Program Admin .................................... - 132 152 - 188 168

State & Private Forestry Total ............. 3,859 7,228 5,415 7,379 7,540 7,820

Wildland Fire Management

Coop Fire Protection-National Fire 

Capacity................................................ 3,084 2,931 - 3,342 1,211 -

Coop Fire Protection-Rural Fire Capacity... 766 817 - 293 386 -

Fire Operations – Suppression .................... - - - 1,284 - 1,600

Fire Preparedness........................................ 53,445 52,528 78,380 51,588 56,322 73,675

Fire Research and Development (NFP)....... - - - - - -

Hazardous Fuels.......................................... 36,672 31,758 - 20,052 23,672 -

Joint Fire Sciences ...................................... - - - - - -

Wildland Fire Management - HazFuels -

Biomass Grants..................................... - - - - - -

Wildland Fire Management Total ........ 93,967 88,034 78,380 76,559 81,591 75,275

Cost Pool Allocations..................................... 38,771 38,698 39,316 38,368 38,489 39,131

Range Betterment Fund.................................. - - - - - -

Gifts, Donations, & Bequests for Research .... - - - - - -

Mgmt of NF Lands for Subsistence Uses....... - - - - - -

Grand Total............................................... 255,270 251,356 277,682 251,757 256,201 266,086
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

198

FY 2016 to FY 2018 Region, Station, and Area Allocations for Region 5 (Pacific Southwest Region) and 

Region 6 (Pacific Northwest Region) (dollars in thousands)

Region 5 (Pacific Southwest Region) Region 6 (Pacific Northwest Region) 

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities.................................................... $6,623 $5,878 $10,523 $5,315 $5,423 $8,436

Infrastructure Improvement ...................... 925 - - 450 - -

Legacy Roads and Trails........................... 5,115 5,218 - 6,159 6,451 -

Roads........................................................ 14,660 15,020 21,410 17,813 17,907 25,595

Trails......................................................... 6,361 5,845 5,715 6,338 6,025 5,669

Capital Improvement & Maintenance 

Total................................................ 33,684 31,961 37,648 36,075 35,806 39,700

Forest and Rangeland Research

Forest & Rangeland Research................... - - - - - -

Forest & Rangeland Research – FIA......... - - - - - -

R&D Forest Products Lab......................... - - - - - -

Forest and Rangeland Research Total - - - - - -

Land Acquisition

Acquisition of Lands for National Forests, 

Special Acts........................................ 317 - - - - -

Complete Land Exchanges........................ - - - - - -

Land Acquisition -- Land and Water 

Conservation Fund.............................. 918 - - 663 - -

Land Acquisition - Acq Mgmt .................. - 798 - - 630 -

Land Acquisition - Cash Equalization....... - - - - - -

Land - Critical Inholding........................... - - - - - -

Land Acquisition - Rec Access................. - - - - - -

Land Acquisition Total........................ 1,235 798 - 663 630 -

National Forest System

Collaborative Forest Landscape 

Restoration.......................................... 2,620 2,796 1,983 6,230 6,648 5,866

Forest Products ......................................... 28,720 22,596 28,095 46,791 50,559 49,200

Grazing Management................................ 3,360 3,466 3,431 3,821 3,833 3,576

Hazardous Fuels........................................ - - 52,779 - - 37,524

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

Inventory and Monitoring ......................... 11,068 - - 11,075 - -

Land Management Planning ..................... 2,597 - - 2,528 - -

Land Use Authorization and Access......... 6,949 6,669 6,563 5,443 5,235 5,049

Law Enforcement Operations ................... - - - - - -

Minerals and Geology Management ......... 4,527 4,658 5,030 3,899 3,921 4,081

Recreation, Heritage, and Wilderness....... 22,528 22,498 20,953 19,335 19,126 18,338

Valles Caldera National Preserve.............. - - - - - -

Vegetation and Watershed Management... 13,584 13,710 13,943 17,523 19,659 17,837

Wildlife and Fisheries Habitat Management 12,173 12,273 10,515 15,241 16,818 13,687

Land Management Planning, Assessment 

and Monitoring ................................... - 12,598 11,433 - 12,252 10,605

Hazardous Fuels- Biomass........................ - - 1,244 - - 2,291

National Forest System Total.............. 108,126 101,264 155,969 131,886 138,051 168,054
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

199

Region 5 (Pacific Southwest Region) Region 6 (Pacific Northwest Region) 

Funds and Programs 2016 2017 2018 2016 2017 2018

State & Private Forestry

Community Forest & Open Space 

Conservation

Economic Action Program........................ - - - - - -

Forest Health Management - Cooperative 

Lands.................................................. 1,858 2,083 2340 2,136 2,296 2529

Forest Health Management - Federal Lands 3,656 3,547 2584 5,556 5,097 3742

Forest Legacy Program............................. 3,288 4,565 12,700 7,474 7,218 10,900

Working Forest Lands............................... 1,040 948 915 720 576 639

International Forestry................................ - - - - - -

Landscape Scale Restoration..................... - - 649 40 - 1,100

National Fire Capacity .............................. - - 380 - - 200

Urban and Community Forestry................ 2,708 2,717 2,173 767 827 661

Rural Fire Capacity................................... - - 1,324 - - 1,183

Cooperative Forestry - Forest Legacy 

Program Admin .................................. - 288 275 - 336 235

State & Private Forestry Total ........... 12,550 14,148 23,340 16,693 16,350 21,189

Wildland Fire Management

Coop Fire Protection-National Fire 

Capacity.............................................. 6,891 5,635 - 5,184 2,221 -

Coop Fire Protection-Volunteer Fire 

Assistance ........................................... 1,016 1,217 - 921 1,015 -

Fire Operations – Suppression .................. - - - - - -

Fire Preparedness...................................... 211,115 238,174 293,578 66,898 69,632 99,861

Fire Research and Development (NFP)..... - - - - - -

Hazardous Fuels........................................ 47,487 56,681 - 28,215 32,195 -

Joint Fire Sciences .................................... - - - - - -

Wildland Fire Management - HazFuels -

Biomass Grants................................... - - - - - -

Wildland Fire Management Total ...... 266,509 301,707 293,578 101,218 105,063 99,861

Cost Pool Allocations................................... 57,818 56,994 58,417 68,191 67,959 69,092

Range Betterment Fund................................ - - - - - -

Gifts, Donations, & Bequests for Research.. - - - - - -

Mgmt of NF Lands for Subsistence Uses..... - - - - - -

Grand Total............................................. 479,922 506,872 531,304 354,726 363,859 397,896
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

200

FY 2016 to FY 2018 Region, Station, and Area Allocations for Region 8 (Southern Region) and Region 9 

(Eastern Region) (dollars in thousands)

Region 8 (Southern Region) Region 9 (Eastern Region) 

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities.............................................................. $6,506 $6,394 $6,455 $4,378 $4,395 $8,110

Infrastructure Improvement ................................ - - - - - -

Legacy Roads and Trails..................................... 3,734 3,860 - 3,091 3,193 -

Roads.................................................................. 16,881 19,656 22,147 15,045 15,068 18,651

Trails................................................................... 6,632 6,576 5,947 4,912 4,933 4,424

Capital Improvement & Maintenance Total 33,753 36,486 34,549 27,426 27,589 31,185

Forest and Rangeland Research

Forest & Rangeland Research............................. 95 95 - - - -

Forest & Rangeland Research – FIA................... - - - - - -

R&D Forest Products Lab................................... - - - - - -

Forest and Rangeland Research Total ......... 95 95 - - - -

Land Acquisition

Acquisition of Lands for National Forests, Special 

Acts............................................................... 316 - - - - -

Complete Land Exchanges.................................. - - - - - -

Land Acquisition -- Land and Water Conservation 

Fund.............................................................. 1,056 - - 1,438 - -

Land Acquisition - Acq Mgmt ............................ - 977 855 - 1,225 1,055

Land Acquisition - Cash Equalization................. - - 105 - - -

Land - Critical Inholding..................................... - - - - - 95

Land Acquisition - Rec Access........................... - - - - - -

Land Acquisition Total.................................. 1,372 977 960 1,438 1,225 1,150

National Forest System

Collaborative Forest Landscape Restoration....... 4,896 5,225 5,572 820 875 744

Forest Products ................................................... 29,169 35,030 36,450 35,916 37,822 38,926

Grazing Management.......................................... 606 554 552 539 554 517

Hazardous Fuels.................................................. - - 40,401 - - 12,296

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

Inventory and Monitoring ................................... 8,125 - - 7,642 - -

Land Management Planning ............................... 2,497 - - 1,096 - -

Land Use Authorization and Access................... 6,535 6,305 6,090 6,271 6,124 5,932

Law Enforcement Operations ............................. - - - - - -

Minerals and Geology Management ................... 3,770 4,269 4,409 4,517 4,924 4,631

Recreation, Heritage, and Wilderness................. 20,994 22,175 21,054 18,134 17,553 16,874

Valles Caldera National Preserve........................ - - - - - -

Vegetation and Watershed Management............. 14,064 14,688 12,614 18,184 15,713 17,767

Wildlife and Fisheries Habitat Management....... 15,872 16,003 15,758 13,809 12,100 13,296

Land Management Planning, Assessment and 

Monitoring.................................................... - 11,111 10,534 - 8,819 9,379

Hazardous Fuels- Biomass.................................. - - 723 - - -

National Forest System Total........................ 106,528 115,360 154,157 106,928 104,484 120,362

State & Private Forestry

Community Forest & Open Space Conservation - - - - - -

Economic Action Program.................................. - - - - - -

Forest Health Management - Cooperative Lands 6,889 6,766 7,166 - - -

Forest Health Management - Federal Lands ....... 6,898 6,661 4,812 1 - -
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

201

Region 8 (Southern Region) Region 9 (Eastern Region) 

Funds and Programs 2016 2017 2018 2016 2017 2018

Forest Legacy Program....................................... 15,923 23,260 16,926 - - -

Working Forest Lands......................................... 5,238 4,158 3,470 - - -

International Forestry.......................................... - - - - - -

Landscape Scale Restoration............................... 60 205 4,167 - - -

National Fire Capacity ........................................ - - 1,300 - - 90

Urban and Community Forestry.......................... 5,456 5,456 4,757 - - -

Rural Fire Capacity............................................. - - 4,207 - - -

Cooperative Forestry - Forest Legacy Program 

Admin........................................................... - 796 695 - - -

State & Private Forestry Total ..................... 40,464 47,302 47,500 1 - 90

Wildland Fire Management

Coop Fire Protection-National Fire Capacity...... 17,092 17,381 - 75 76 -

Coop Fire Protection-Volunteer Fire Assistance. 3,689 4,079 - - - -

Fire Operations – Suppression ............................ - - - - - -

Fire Preparedness................................................ 32,493 32,850 39,439 21,029 19,728 22,667

Fire Research and Development (NFP)............... - - - - - -

Hazardous Fuels.................................................. 35,735 39,414 - 11,042 12,064 -

Joint Fire Sciences .............................................. - - - - - -

Wildland Fire Management - HazFuels -

Biomass Grants............................................. - - - - - -

Wildland Fire Management Total ................ 89,009 93,724 39,439 32,146 31,868 22,667

Cost Pool Allocations............................................. 42,535 42,394 43,347 36,284 35,820 36,274

Range Betterment Fund.......................................... - - - - - -

Gifts, Donations, & Bequests for Research ............ - - - - - -

Mgmt of NF Lands for Subsistence Uses............... - - - - - -

Grand Total....................................................... 313,756 336,338 319,952 204,223 200,986 211,728
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

202

FY 2016 to FY 2018 Region, Station, and Area Allocations for Region 10 (Alaska Region) and Forest 

Products Lab (dollars in thousands)

Region 10 (Alaska Region) Forest Products Lab

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities................................................................ $4,576 $3,385 $3,413 $35 $400 $752

Infrastructure Improvement .................................. - - - - - -

Legacy Roads and Trails....................................... 553 532 - - - -

Roads.................................................................... 7,800 6,589 7,899 - - -

Trails..................................................................... 3,334 3,240 3,205 - - -

Capital Improvement & Maintenance Total . 16,263 13,746 14,517 35 400 752

Forest and Rangeland Research

Forest & Rangeland Research............................... 27 31 31 26,320 19,722 24,517

Forest & Rangeland Research – FIA..................... - - - - - -

R&D Forest Products Lab..................................... - - - - 2,000 -

Forest and Rangeland Research Total ........... 27 31 31 26,320 21,722 24,517

Land Acquisition

Acquisition of Lands for National Forests, Special 

Acts................................................................. - - - - - -

Complete Land Exchanges.................................... - - - - - -

Land Acquisition -- Land and Water Conservation 

Fund................................................................ 162 4,888 - - - -

Land Acquisition - Acq Mgmt .............................. - 147 134 - - -

Land Acquisition - Cash Equalization................... - - - - - -

Land - Critical Inholding....................................... - - - - - -

Land Acquisition - Rec Access............................. - - - - - -

Land Acquisition Total.................................... 162 5,035 134 - - -

National Forest System

Collaborative Forest Landscape Restoration......... - - - - - -

Forest Products ..................................................... 14,490 14,521 13,958 - - -

Grazing Management............................................ - - - - - -

Hazardous Fuels.................................................... - - 781 - - -

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

Inventory and Monitoring ..................................... 5,603 - - - - -

Land Management Planning ................................. 994 - - - - -

Land Use Authorization and Access..................... 3,525 3,359 3,325 - - -

Law Enforcement Operations ............................... - - - - - -

Minerals and Geology Management ..................... 2,845 2,818 2,661 - 30 -

Recreation, Heritage, and Wilderness................... 7,634 7,677 7,222 - - -

Valles Caldera National Preserve.......................... - - - - - -

Vegetation and Watershed Management............... 4,520 4,946 5,042 - - -

Wildlife and Fisheries Habitat Management......... 7,560 7,573 7,557 - - -

Land Management Planning, Assessment and 

Monitoring...................................................... - 5,630 5,202 - - -

Hazardous Fuels- Biomass.................................... - - 260 - - 880

National Forest System Total.......................... 47,171 46,524 46,008 - 30 880

State & Private Forestry

Community Forest & Open Space Conservation .. - - - - - -

Economic Action Program.................................... - - - - - -

Forest Health Management - Cooperative Lands.. 1,132 1,354 1,120 - - -

Forest Health Management - Federal Lands ......... 1,657 1,565 1,127- - - -
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

203

Region 10 (Alaska Region) Forest Products Lab

Funds and Programs 2016 2017 2018 2016 2017 2018

Forest Legacy Program......................................... 49 - - - - -

Working Forest Lands........................................... 528 512 -391 - - -

International Forestry............................................ - - - - - -

Landscape Scale Restoration................................. - - - - - -

National Fire Capacity .......................................... - - 1,000 - - -

Urban and Community Forestry............................ 235 237 230 - - -

Rural Fire Capacity............................................... - - 385 - - -

Cooperative Forestry - Forest Legacy Program 

Admin............................................................. - 16 16 - - -

State & Private Forestry Total ....................... 3,601 3,684 2,360 - - -

Wildland Fire Management

Coop Fire Protection-National Fire Capacity....... 1,150 1,347 - - - -

Coop Fire Protection-Rural Fire Capacity............. 105 292 - - - -

Fire Operations – Suppression .............................. - - - - - -

Fire Preparedness.................................................. 2,511 2,281 2,639 - - -

Fire Research and Development (NFP)................. - - - 651 - -

Hazardous Fuels.................................................... 882 1,010 - 902 905 -

Joint Fire Sciences ................................................ - - - - - -

Wildland Fire Management - HazFuels - Biomass 

Grants ............................................................. - - - - - -

Wildland Fire Management Total .................. 4,648 4,930 2,639 1,553 905 -

Cost Pool Allocations............................................... 16,336 15,906 16,098 20 33 13

Range Betterment Fund............................................ - - - - - -

Gifts, Donations, & Bequests for Research.............. - - - - - -

Mgmt of NF Lands for Subsistence Uses................. 2,500 2,499 2,500 - - -

Grand Total......................................................... 90,708 92,355 84,287 27,928 23,090 26,162
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

204

FY 2016 to FY 2018 Region, Station, and Area Allocations for Rocky Mountain Research Station and 

Northern Research Station (dollars in thousands)

Rocky Mountain Research Station Northern Research Station

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities...................................................... $2,219 $643 $782 425 $75 $759

Infrastructure Improvement ........................ - - - - - -

Legacy Roads and Trails............................. - - - - - -

Roads.......................................................... - - - - - -

Trails........................................................... - - - - - -

Capital Improvement & Maintenance 

Total.................................................. 2,219 643 782 25 75 759

Forest and Rangeland Research

Forest & Rangeland Research..................... 38,394 24,323 27,825 51,043 33,525 31,860

Forest & Rangeland Research – FIA........... - 14,163 13,843 - 17,701 17,070

R&D Forest Products Lab........................... - - - - - -

Forest and Rangeland Research Total . 38,394 38,486 41,668 51,043 51,226 48,930

Land Acquisition

Acquisition of Lands for National Forests, 

Special Acts.......................................... - - - - - -

Complete Land Exchanges.......................... - - - - - -

Land Acquisition -- Land and Water 

Conservation Fund................................ - - - - - -

Land Acquisition - Acq Mgmt .................... - - - - - -

Land Acquisition - Cash Equalization......... - - - - - -

Land - Critical Inholding............................. - - - - - -

Land Acquisition - Rec Access................... - - - - - -

Land Acquisition Total.......................... - - - - - -

National Forest System

Collaborative Forest Landscape Restoration - - - - - -

Forest Products ........................................... 264 265 265 - - -

Grazing Management.................................. - - - - - -

Hazardous Fuels.......................................... - - 3,750 - - 57

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

Inventory and Monitoring ........................... - - - - - -

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

Land Use Authorization and Access........... - - - - - -

Law Enforcement Operations ..................... - - - - - -

Minerals and Geology Management ........... - - - - - -

Recreation, Heritage, and Wilderness......... - 29 275 55 56 -

Valles Caldera National Preserve................ - - - - - -

Vegetation and Watershed Management..... 306 307 265 - - -

Wildlife and Fisheries Habitat Management 265 265 440 - - -

Land Management Planning, Assessment 

and Monitoring ..................................... - - - - - -

Hazardous Fuels- Biomass.......................... - - - - - -

National Forest System Total................ 835 866 4,995 55 56 57
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

205

Rocky Mountain Research Station Northern Research Station

Funds and Programs 2016 2017 2018 2016 2017 2018

State & Private Forestry

Community Forest & Open Space 

Conservation......................................... - - - - - -

Economic Action Program.......................... - - - - - -

Forest Health Management - Cooperative 

Lands.................................................... - - - 65 244 255

Forest Health Management - Federal Lands 499 99 99 20 - -

Forest Legacy Program............................... - - - 65 - -

Working Forest Lands................................. 189 - 118 - - -

International Forestry.................................. - - - - - -

Landscape Scale Restoration....................... - - - - - -

National Fire Capacity ................................ - - 99 - - -

Urban and Community Forestry.................. - - - 25 - 25

Rural Fire Capacity..................................... - - - - - -

Cooperative Forestry - Forest Legacy 

Program Admin .................................... - - - - 65 65

State & Private Forestry Total ............. 688 99 316 175 309 345

Wildland Fire Management

Coop Fire Protection-National Fire 

Capacity................................................ 99 99 - - - -

Coop Fire Protection- Rural Fire Capacity.. - - - - - -

Fire Operations – Suppression .................... 1,266 1,266 1,266 - - -

Fire Preparedness........................................ 2,559 1,089 3,317 - - -

Fire Research and Development (NFP)....... 6,606 1,105 - 2,944 171 -

Hazardous Fuels.......................................... 2,901 797 - 57 57 -

Joint Fire Sciences ...................................... - - - - - -

Wildland Fire Management - HazFuels -

Biomass Grants..................................... - - - - - -

Wildland Fire Management Total ........ 13,431 4,356 4,583 3,001 228 -

Cost Pool Allocations..................................... 78 78 26 97 104 20

Range Betterment Fund.................................. - - - - - -

Gifts, Donations, & Bequests for Research .... - - - - - -

Mgmt of NF Lands for Subsistence Uses....... - - - - - -

Grand Total............................................... 55,645 44,528 52,370 54,396 51,998 50,111
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

206

FY 2016 to FY 2018 Region, Station, and Area Allocations for Pacific Northwest Research Station and 

Pacific Southwest Research Station (dollars in thousands)

Pacific Northwest Research Station Pacific Southwest Research Station

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities.................................................. $2,140 $350 $429 $26 $23 $400

Infrastructure Improvement .................... 1,712 - - - - -

Legacy Roads and Trails......................... - - - - - -

Roads...................................................... - - - - - -

Trails....................................................... - - - - - -

Capital Improvement & Maintenance 

Total.............................................. 3,852 350 429 26 23 400

Forest and Rangeland Research

Forest & Rangeland Research................. 40,346 23,500 25,345 17,381 17,499 17,573

Forest & Rangeland Research – FIA....... - 16,490 16,185 - - -

R&D Forest Products Lab....................... - - - - - -

Forest and Rangeland Research Total

....................................................... 40,346 39,990 41,530 17,381 17,499 17,573

Land Acquisition

Acquisition of Lands for National Forests, 

Special Acts...................................... - - - - - -

Complete Land Exchanges...................... - - - - - -

Land Acquisition -- Land and Water 

Conservation Fund............................ - - - - - -

Land Acquisition - Acq Mgmt ................ - - - - - -

Land Acquisition - Cash Equalization..... - - - - - -

Land - Critical Inholding......................... - - - - - -

Land Acquisition - Rec Access............... - - - - - -

Land Acquisition Total...................... - - - - - -

National Forest System

Collaborative Forest Landscape 

Restoration........................................ - - - - - -

Forest Products ....................................... - - - - - -

Grazing Management.............................. - - - - - -

Hazardous Fuels...................................... - - 722 - - -

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

Inventory and Monitoring ....................... 642 - - - - -

Land Management Planning ................... - - - 32 - -

Land Use Authorization and Access....... - - - - - -

Law Enforcement Operations ................. - - - - - -

Minerals and Geology Management ....... 14 - - - - -

Recreation, Heritage, and Wilderness..... - 56 - - - -

Valles Caldera National Preserve............ - - - - - -

Vegetation and Watershed Management. 181 156 181 27 82 27

Wildlife and Fisheries Habitat 

Management ..................................... - - - - - -

Land Management Planning, Assessment 

and Monitoring ................................. - 542 542 - 32 32

Hazardous Fuels- Biomass...................... - - - - - -

National Forest System Total............ 837 754 1,445 59 114 59
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

207

Pacific Northwest Research Station Pacific Southwest Research Station

Funds and Programs 2016 2017 2018 2016 2017 2018

State & Private Forestry

Community Forest & Open Space 

Conservation..................................... - - - - - -

Economic Action Program...................... - - - - - -

Forest Health Management - Cooperative 

Lands................................................ 294 269 294 47 59 82

Forest Health Management - Federal 

Lands................................................ 294 269 294 - - 79

Forest Legacy Program........................... - - - 24 24 -

Working Forest Lands............................. - - - 49 49 49

International Forestry.............................. - - - - - -

Landscape Scale Restoration................... - - - - - -

National Fire Capacity ............................ - - - - - 24

Urban and Community Forestry.............. - - - 24 24 24

Rural Fire Capacity................................. - - - - - -

Cooperative Forestry - Forest Legacy 

Program Admin ................................ - - - - - 24

State & Private Forestry Total ......... 588 538 588 144 156 282

Wildland Fire Management

Coop Fire Protection-National Fire 

Capacity............................................ - - - 24 24 -

Coop Fire Protection-Rural Fire 

Capacity............................................ - - - - - -

Fire Operations – Suppression ................ - - - - - -

Fire Preparedness.................................... 54 54 129 - - -

Fire Research and Development (NFP)... 4,082 617 - 2,690 101 -

Hazardous Fuels...................................... 382 307 - - - -

Joint Fire Sciences .................................. - - - - - -

Wildland Fire Management - HazFuels -

Biomass Grants................................. - - - - - -

Wildland Fire Management Total .... 4,518 978 129 2,714 125 -

Cost Pool Allocations................................. 39 33 13 26 20 20

Range Betterment Fund.............................. - - - - - -

Gifts, Donations, & Bequests for Research - - - - - -

Mgmt of NF Lands for Subsistence Uses... - - - - - -

Grand Total........................................... 50,180 42,643 44,134 20,350 17,937 18,334
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

208

FY 2016 to FY 2018 Region, Station, and Area Allocations for Southern Research Station and the 

International Institute of Tropical Forestry (dollars in thousands)

Southern Research Station International Institute of Tropical 

Forestry

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities........................................................ $664 $2,450 $866 $25 $130 $69

Infrastructure Improvement .......................... - - - - - -

Legacy Roads and Trails............................... - - - - - -

Roads............................................................ - - - - - -

Trails............................................................. - - - - - -

Capital Improvement & Maintenance 

Total.................................................... 664 2,450 866 25 130 69

Forest and Rangeland Research

Forest & Rangeland Research....................... 46,414 28,615 26,552 2,713 2,689 2,157

Forest & Rangeland Research – FIA............. - 18,184 17,772 - - -

R&D Forest Products Lab............................. - - - - - -

Forest and Rangeland Research Total ... 46,414 46,799 44,324 2,713 2,689 2,157

Land Acquisition

Acquisition of Lands for National Forests, 

Special Acts............................................ - - - - - -

Complete Land Exchanges............................ - - - - - -

Land Acquisition -- Land and Water 

Conservation Fund.................................. - - - - - -

Land Acquisition - Acq Mgmt ...................... - - - - - -

Land Acquisition - Cash Equalization........... - - - - - -

Land - Critical Inholding............................... - - - - - -

Land Acquisition - Rec Access..................... - - - - - -

Land Acquisition Total............................ - - - - - -

National Forest System

Collaborative Forest Landscape Restoration. - - - - - -

Forest Products ............................................. - - - - - -

Grazing Management.................................... - - - - - -

Hazardous Fuels............................................ - - 191 - - -

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

Inventory and Monitoring ............................. 550 - - - - -

Land Management Planning ......................... - - - 44 - -

Land Use Authorization and Access............. - - - - - -

Law Enforcement Operations ....................... - - - - - -

Minerals and Geology Management ............. - - - - - -

Recreation, Heritage, and Wilderness........... - - - - - -

Valles Caldera National Preserve.................. - - - - - -

Vegetation and Watershed Management....... 181 431 181 103 105 105

Wildlife and Fisheries Habitat Management. - - - - - -

Land Management Planning, Assessment and 

Monitoring.............................................. - 542 542 - 44 44

Hazardous Fuels- Biomass............................ - - - - - -

National Forest System Total.................. 731 973 914 147 149 149
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

209

Southern Research Station International Institute of Tropical 

Forestry

Funds and Programs 2016 2017 2018 2016 2017 2018

State & Private Forestry

Community Forest & Open Space 

Conservation........................................... - - - - - -

Economic Action Program............................ - - - - - -

Forest Health Management - Cooperative 

Lands...................................................... 341 317 358 249 312 307

Forest Health Management - Federal Lands . 443 438 438 16 11 8

Forest Legacy Program................................. - - - - - 1,375

Working Forest Lands................................... - - - 385 369 339

International Forestry.................................... - - - - - -

Landscape Scale Restoration......................... - - - - - -

National Fire Capacity .................................. - - - - - 23

Urban and Community Forestry.................... - - - 389 393 379

Rural Fire Capacity....................................... - - - - - 35

Cooperative Forestry - Forest Legacy 

Program Admin ...................................... - - - - 151 71

State & Private Forestry Total ............... 784 755 796 1,039 1,236 2,537

Wildland Fire Management

Coop Fire Protection-National Fire Capacity - - - 412 417 -

Coop Fire Protection-Rural Fire Capacity..... - - - 28 32 -

Fire Operations – Suppression ...................... - - - - - -

Fire Preparedness.......................................... 80 100 100 - - -

Fire Research and Development (NFP)......... 2,282 71 - 100 100 -

Hazardous Fuels............................................ 191 191 - - - -

Joint Fire Sciences ........................................ - - - - - -

Wildland Fire Management - HazFuels -

Biomass Grants....................................... - - - - - -

Wildland Fire Management Total .......... 2,553 362 100 540 549 -

Cost Pool Allocations....................................... 91 85 33 1,253 1,285 1,307

Range Betterment Fund.................................... - - - - - -

Gifts, Donations, & Bequests for Research ...... - - - - - -

Mgmt of NF Lands for Subsistence Uses......... - - - - - -

Grand Total................................................. 51,237 51,424 47,033 5,717 6,038 6,219
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

210

FY 2016 to FY 2018 Region, Station, and Area Allocations for Northeastern Area (State and Private Forestry) 

and the Albuquerque Service Center (dollars in thousands)

Northeastern Area Albuquerque Service Center

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities............................................................ - - $114 - $250 $250

Infrastructure Improvement .............................. - - - - - -

Legacy Roads and Trails................................... - - - - - -

Roads................................................................ - - - 1,183 1,441 1,433

Trails................................................................. - - - - - -

Capital Improvement & Maintenance Total - - 114 1,183 1,691 1,683

Forest and Rangeland Research

Forest & Rangeland Research........................... - - - 1,748 2,197 2,148

Forest & Rangeland Research – FIA................. - - - - - -

R&D Forest Products Lab................................. - - - - - -

Forest and Rangeland Research Total ....... - - - 1,748 2,197 2,148

Land Acquisition

Acquisition of Lands for National Forests, 

Special Acts................................................ - - - - - -

Complete Land Exchanges................................ - - - - - -

Land Acquisition -- Land and Water 

Conservation Fund...................................... - - - - - -

Land Acquisition - Acq Mgmt .......................... - - - - - -

Land Acquisition - Cash Equalization............... - - - - - -

Land - Critical Inholding................................... - - - - - -

Land Acquisition - Rec Access......................... - - - - - -

Land Acquisition Total................................ - - - - - -

National Forest System

Collaborative Forest Landscape Restoration..... - - - - - -

Forest Products ................................................. - - - 3,092 3,509 3,519

Grazing Management........................................ - - - 30 31 31

Hazardous Fuels................................................ - - 5 - - 969

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

Inventory and Monitoring ................................. - - - - - -

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

Land Use Authorization and Access................. - - - - - -

Law Enforcement Operations ........................... - - - 662 671 678

Minerals and Geology Management ................. - - - 61 62 80

Recreation, Heritage, and Wilderness............... - - - 2,779 3,127 3,044

Valles Caldera National Preserve...................... - - - - - -

Vegetation and Watershed Management........... - - - 1,068 1,071 1,068

Wildlife and Fisheries Habitat Management..... - - - - - -

Land Management Planning, Assessment and 

Monitoring.................................................. - - - - 300 300

Hazardous Fuels- Biomass................................ - - 2,469 - - -

National Forest System Total...................... - - 2,474 7,692 8,771 9,689
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

211

Northeastern Area Albuquerque Service Center

Funds and Programs 2016 2017 2018 2016 2017 2018

State & Private Forestry

Community Forest & Open Space 

Conservation............................................... - - - - - -

Economic Action Program................................ - - - - - -

Forest Health Management - Cooperative Lands 13,236 13,609 15,250 174 174 169

Forest Health Management - Federal Lands ..... 6,949 5,710 6,195 23 270 216

Forest Legacy Program..................................... 19,712 7,495 5,000 30 - -

Working Forest Lands....................................... 6,444 5,514 4,575 30 234 230

International Forestry........................................ - - - - - 15

Landscape Scale Restoration............................. 70 70 4,167 - - -

National Fire Capacity ...................................... - - 2,150 - - -

Urban and Community Forestry........................ 8,689 8,763 7,563 63 88 35

Rural Fire Capacity........................................... - - 5,007 - - -

Cooperative Forestry - Forest Legacy Program 

Admin......................................................... - 1,356 1,311 - 30 30

State & Private Forestry Total ................... 55,100 42,517 45,023 320 796 695

Wildland Fire Management

Coop Fire Protection-National Fire Capacity.... 12,975 13,270 - - - -

Coop Fire Protection-Rural Fire Capacity......... 3,961 4,576 - - - -

Fire Operations – Suppression .......................... - - - - 3,850 3,850

Fire Preparedness.............................................. - 30 - 12,796 14,393 12,956

Fire Research and Development (NFP)............. - - - - - -

Hazardous Fuels................................................ 405 355 - 100 555 -

Joint Fire Sciences ............................................ - - - - - -

Wildland Fire Management - HazFuels -

Biomass Grants........................................... - - - - - -

Wildland Fire Management Total .............. 17,341 18,231 - 12,896 18,799 16,806

Cost Pool Allocations........................................... 1,683 1,681 1,706 357,857 359,761 341,922

Range Betterment Fund........................................ - - - - - -

Gifts, Donations, & Bequests for Research .......... - - - - - -

Mgmt of NF Lands for Subsistence Uses............. - - - - - -

Grand Total..................................................... 74,124 62,429 49,317 381,696 392,015 372,943
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

212

FY 2016 to FY 2018 Region, Station, and Area Allocations for the Washington Office and 

national/unallocated (dollars in thousands)

Washington Office National / Unallocated

Funds and Programs 2016 2017 2018 2016 2017 2018

Capital Improvement & Maintenance

Facilities................................................................ $4,808 $6,979 $10,530 $800 $830 $67,043

Infrastructure Improvement .................................. 63 - - - - -

Legacy Roads and Trails....................................... 108 277 - 926 107 -

Roads.................................................................... 5,238 3,125 3,319 536 3,121 3,622

Trails..................................................................... 1,552 1,355 2,045 240 1,479 7,455

Capital Improvement & Maintenance Total . 11,769 11,736 15,894 2,502 5,537 78,120

Forest and Rangeland Research

Forest & Rangeland Research............................... 23,624 18,854 - 3,619 45,389 13,893

Forest & Rangeland Research – FIA..................... - - - - 537 2,304

R&D Forest Products Lab..................................... - - - - - -

Forest and Rangeland Research Total ........... 23,624 18,854 - 3,619 45,926 16,197

Land Acquisition

Acquisition of Lands for National Forests, Special 

Acts................................................................. - - - - 950 1,700

Complete Land Exchanges.................................... - - - 216 216 192

Land Acquisition -- Land and Water Conservation 

Fund................................................................ 121 130 - 55,146 30,395 50,035

Land Acquisition - Acq Mgmt .............................. - - 184 - 1,914 360

Land Acquisition - Cash Equalization................... - - - - 750 145

Land - Critical Inholding....................................... - - - - 2,000 1,905

Land Acquisition - Rec Access............................. - - - - 4,700 4,558

Land Acquisition Total.................................... 121 130 184 55,362 40,925 58,895

National Forest System

Collaborative Forest Landscape Restoration......... - - - - 9,570 42

Forest Products ..................................................... 16,483 22,553 16,433 565 3,488 356

Grazing Management............................................ 2,127 1,925 2,039 240 520 1,316

Hazardous Fuels.................................................... - - 2,516 - - 65,060

Integrated Resource Restoration ........................... 1,521 1,220 - 1,648 509 -

Inventory and Monitoring ..................................... 39,144 - - 415 - -

Land Management Planning ................................. 7,674 - - 240 - -

land Use Authorization and Access ...................... 7,221 7,009 8,446 539 82 329

Law Enforcement Operations ............................... 5,329 107,069 109,703 102,479 1,687 1,718

Minerals and Geology Management ..................... 7,546 6,718 6,722 2,107 645 1,487

Recreation, Heritage, and Wilderness................... 19,412 15,316 12,401 664 6,374 13,330

Valles Caldera National Preserve.......................... - - - - - -

Vegetation and Watershed Management............... 18,193 18,039 17,207 2,053 431 5,036

Wildlife and Fisheries Habitat Management......... 5,498 5,784 6,900 791 721 517

Land Management Planning, Assessment and 

Monitoring...................................................... - 49,555 50,613 - 536 1,127

Hazardous Fuels- Biomass.................................... - - 2,357 - - -

National Forest System Total.......................... 130,148 235,188 235,337 111,741 24,563 90,318

State & Private Forestry

Community Forest & Open Space Conservation .. - - - 2,000 2,000 4,000

Economic Action Program.................................... - - - - - -

Forest Health Management - Cooperative Lands.. 788 859 482 4,447 3,365 2,888

Forest Health Management - Federal Lands ......... 7,058 6,821 6,583 5,192 4,296 11,277
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

213

Washington Office National / Unallocated

Funds and Programs 2016 2017 2018 2016 2017 2018

Forest Legacy Program......................................... 1,098 (24) 14 470 - -

Working Forest Lands........................................... 2,967 2,864 2,466 902 504 3,152

International Forestry............................................ 7,043 6,929 7,414 - 114 624

Landscape Scale Restoration................................. - 95 1,500 13,823 13,630 -

National Fire Capacity .......................................... - - 7,972 - - 63,667

Urban and Community Forestry............................ 2,334 2,338 2,027 1,564 1,592 5,200

Rural Fire Capacity............................................... - - - - - -

Cooperative Forestry - Forest Legacy Program 

Admin............................................................. - 1,154 960 - 1,313 932

State & Private Forestry Total ....................... 21,288 21,036 29,418 28,398 26,814 91,740

Wildland Fire Management

Coop Fire Protection-National Fire Capacity........ 4,614 2,893 - 8,100 23,564 -

Coop Fire Protection-Rural Fire Capacity............. - - - - - -

Fire Operations – Suppression .............................. 149,474 122,460 134,874 578,588 1,120,425 1,314,801

Fire Preparedness.................................................. 268,799 243,469 294,796 30,892 271,380 49,533

Fire Research and Development (NFP)................. 25 - - 415 17,630 -

Hazardous Fuels.................................................... 12,403 13,260 - 54,250 96,803 -

Joint Fire Sciences ................................................ - - - 6,914 3,000 -

Wildland Fire Management - HazFuels - Biomass 

Grants ............................................................. - - - - 10,000 -

Wildland Fire Management Total .................. 435,315 382,082 429,670 679,159 1,542,802 1,364,334

Cost Pool Allocations............................................... 83,746 80,454 79,756 139,255 142,752 145,182

Range Betterment Fund............................................ - - - 2,320 2,320 -

Gifts, Donations, & Bequests for Research .............. - - - 45 45 45

Mgmt of NF Lands for Subsistence Uses................. - - - - 1 -

Grand Total......................................................... 706,011 749,480 790,259 1,022,401 1,831,685 1,844,831
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

214

FY 2016 to FY 2018 total Forest Service allocations (dollars in thousands)

Forest Service Total

Funds and Programs 2016 2017 2018

Capital Improvement & Maintenance

Facilities.................................................................................................. $54,164 $56,078 $135,841

Infrastructure Improvement .................................................................... 3,150 - -

Legacy Roads and Trails......................................................................... 22,386 22,386 -

Roads...................................................................................................... 134,771 138,728 177,055

Trails....................................................................................................... 54,562 54,562 8,118

Capital Improvement & Maintenance Total ................................... 269,033 271,754 321,014

Forest and Rangeland Research

Forest & Rangeland Research................................................................. 251,763 216,439 -

Forest & Rangeland Research – FIA....................................................... - 67,075 67,174

R&D Forest Products Lab....................................................................... - 2,000 -

Forest and Rangeland Research Total ............................................. 251,763 285,514 67,174

Land Acquisition

Acquisition of Lands for National Forests, Special Acts ........................ 950 950 1,700

Complete Land Exchanges...................................................................... 216 216 192

Land Acquisition -- Land and Water Conservation Fund ....................... 61,521 39,413 50,035

Land Acquisition - Acq Mgmt ................................................................ - 7,552 476

Land Acquisition - Cash Equalization..................................................... - 750 -

Land - Critical Inholding......................................................................... - 2,000 2,000

Land Acquisition - Rec Access............................................................... - 4,700 4,700

Land Acquisition Total...................................................................... 62,687 55,581 59,103

National Forest System

Collaborative Forest Landscape Restoration........................................... 28,516 40,000 30,526

Forest Products ....................................................................................... 200,459 212,287 267,603

Grazing Management.............................................................................. 40,587 40,587 5,070

Hazardous Fuels...................................................................................... - - 24,174

Integrated Resource Restoration ............................................................. 158,491 159,448 -

Inventory and Monitoring ....................................................................... 118,331 - -

Land Management Planning ................................................................... 27,428 - -

Land Use Authorization and Access....................................................... 56,676 54,590 55,051

Law Enforcement Operations ................................................................. 108,470 109,427 -

Minerals and Geology Management ....................................................... 58,240 58,343 7,718

Recreation, Heritage, and Wilderness..................................................... 180,374 182,850 11,571

Valles Caldera National Preserve............................................................ - - -

Vegetation and Watershed Management................................................. 100,711 101,668 14,846

Wildlife and Fisheries Habitat Management........................................... 79,368 79,368 102,583

Land Management Planning, Assessment and Monitoring ..................... - 144,648 141,366

Hazardous Fuels- Biomass...................................................................... - - 12,000

National Forest System Total............................................................ 1,157,651 1,183,216 672,508

State & Private Forestry

Community Forest & Open Space Conservation .................................... 2,000 2,000 4,000

Economic Action Program...................................................................... - - -

Forest Health Management - Cooperative Lands.................................... 35,893 36,129 1,244

Forest Health Management - Federal Lands ........................................... 49,352 44,973 2,353

Forest Legacy Program........................................................................... 61,390 55,947 60,625

Working Forest Lands............................................................................. 21,122 18,122 515

International Forestry.............................................................................. 7,043 7,043 -
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

215

Forest Service Total

Funds and Programs 2016 2017 2018

Landscape Scale Restoration................................................................... 14,000 14,000 918

National Fire Capacity ............................................................................ - - 78,105

Urban and Community Forestry.............................................................. 26,126 26,126 26,605

Rural Fire Capacity................................................................................. - - 1,025

Cooperative Forestry - Forest Legacy Program Admin .......................... - 6,400 237

State & Private Forestry Total ......................................................... 216,926 210,740 175,627

Wildland Fire Management

Coop Fire Protection-National Fire Capacity.......................................... 76,085 78,000 -

Coop Fire Protection-Rural Fire Capacity............................................... 13,000 15,000 -

Fire Operations – Suppression ................................................................ 730,612 1,248,000 1,456,390

Fire Preparedness.................................................................................... 830,929 1,080,146 1,080,399

Fire Research and Development (NFP)................................................... 19,795 19,795 -

Hazardous Fuels...................................................................................... 287,838 356,000 -

Joint Fire Sciences .................................................................................. 6,914 3,000 -

Wildland Fire Management - HazFuels - Biomass Grants...................... - 10,000 -

Wildland Fire Management Total .................................................... 1,965,173 2,809,941 2,536,789

Cost Pool Allocations................................................................................. 957,000 957,000 947,339

Range Betterment Fund.............................................................................. 2,320 2,320 -

Gifts, Donations, & Bequests for Research ................................................ 45 45 45

Mgmt of NF Lands for Subsistence Uses................................................... 2,500 2,500 2,500

Grand Total........................................................................................... 4,885,098 5,778,611 4,782,099
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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RESEARCH AND DEVELOPMENT FIELD UNIT BUDGET REPORT

Overview and 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 span 

across public and private lands. The foundation of these efforts and decisions are grounded in sound science that is 

primarily conducted by the USDA Forest Service Research and Development (R&D). Science-based management is 

fundamental to restoring, enhancing and sustainably reaping ecological, social, environmental benefits from the 

Nation’s forest and grasslands.

Forest Service R&D installations are distributed across the 50 States and Puerto Rico. This research is administered 

by a national laboratory, an international institute and five research stations. The national laboratory and 

international institute are the Forest Products Laboratory in Madison, WI and the International Institute of Tropical 

Forestry in Rio Piedras, Puerto Rico, respectively. The five stations include:

 Northern Research Station, headquartered in Newton Square, PA

 Pacific Northwest Research Station, headquartered in Portland, OR

 Pacific Southwest Research Station, headquartered in Albany, CA

 Rocky Mountain Research Station, headquartered in Fort Collins, CO

 Southern Research Station, headquartered in Asheville, NC

This report provides detailed actual and estimated information on Forest Service R&D expenditures in the field units 

from FY 2015 – FY 2020.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Forest Service R&D allocations by Research Station and fiscal years (dollars in thousands

a

Includes funds from Other Forest Service budget line items such as the National Fire Plan and the Joint Fire Sciences Program from the 

Wildland Fire Management main head.

Forest Products Laboratory

The Forest Products Laboratory (FPL) is the Nation’s leading Federal wood utilization research laboratory and 

serves the entire United States. The FPL develops innovative science and technology to conserve, extend and 

sustainably utilize forest resources to improve health, diversity, and productivity of the nation’s forest to meet the 

needs of current and future generations.

Station

Budget Line 

Item

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate

2020 

Budget

Forest 

Products 

Laboratory

Research $20,228 $26,320 $21,722 $22,103 $22,103 $21,959

Othera 651 651 651 - - 479

Total 20,879 26,971 22,373 22,103 22,103 22,438

International 

Institute of 

Tropical 

Forestry

Research 3,024 2,773 2,689 2,670 2,670 1,460

Other 2,410 2,552 1,917 1,903 1,903 1,219

Total 5,434 5,325 4,606 4,573 4,573 2,679

Northern 

Research 

Station

Research 55,027 51,043 51,226 51,828 51,828 38,929

Other 3,672 3,114 3,410 - - 2,366

Total 58,699 54,157 54,636 51,828 51,828 41,295

Pacific 

Northwest 

Research 

Station

Research 40,546 40,346 39,808 39,529 39,529 35,812

Other 6,874 7,694 6,321 6,277 6,277 5,506

Total 47,420 48,040 46,129 45,806 45,806 41,318

Pacific 

Southwest 

Research 

Station

Research 19,746 17,381 17,500 18,887 18,887 12,066

Other 5,081 3,979 3,100 245 245 5,211

Total 24,827 21,360 20,600 19,132 19,132 17,277

Rocky 

Mountain 

Research 

Station

Research 41,049 37,444 37,536 42,961 42,961 29,820

Other 20,028 29,975 24,640 16,487 16,487 20,379

Total 61,077 67,419 62,176 59,448 59,448 50,199

Southern 

Research 

Station

Research 48,187 46,414 45,863 38,902 38,902 28,787

Other 3,753 3,797 1,709 3,453 3,453 2,541

Total 51,940 50,211 47,572 42,355 42,355 31,328

Grand Total 270,276 273,483 260,191 251,430 251,430 206,534
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Forest Product Laboratory Field Unit Allocations and Staffing by Science and Administrative Categories

(dollars in thousands)

Forest Product 

Laboratory

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Research & Development $20,228 $26,320 $21,722 $22,103 $22,103 $21,959

Other fundinga 651 651 651 - - 479

Total Allocation 20,879 26,971 22,373 22,103 22,103 22,438

Staffing by Science and Administrative Categories 

Scientists 55 55 53 50 50 47

Support staff 100 99 97 92 92 88

Administrative Support 7 7 7 6 6 5

Professional/Technical 

Support 93 92 90 86 86 83

Breakout by Administrative and Research Allocations 

Administrative 

Allocation 6,966 7,008 6,596 6,038 6,038 6,556

Research Allocation 13,913 19,963 15,777 16,065 16,065 15,882

Total by Administrative 

& Research 

Allocations 20,879 26,971 22,373 22,103 22,103 22,438

a

Includes funds from other Forest Service budget line items such as the National Fire Plan and the Joint Fire Sciences Program from the 

Wildland Fire budget line item.

Forest Products Laboratory Research Programs (dollars in thousands)

Description of 

Research Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Advanced Composite Sciences Research

Allocation 1,401 1,853 1,733 1,755 1,755 1,651

Scientists 5 6 6 6 6 5

Support Staff 4 4 4 4 4 4

Administrative 1 1 1 1 1 1

Professional/technical 3 3 3 3 3 3

Forest Biopolymer Science & Engineering

Allocation 1,998 2,879 2,232 2,265 2,265 2,384

Scientists 9 9 8 8 8 9

Support Staff 5 5 5 5 5 4

Administrative 1 1 1 1 1 1

Professional/technical 4 4 4 4 4 3

Fiber and Chemical Sciences

Allocation 2,304 2,768 2,101 2,135 2,135 2,430

Scientists 6 6 5 5 5 6

Support Staff 8 7 7 7 7 7

Administrative - - - - - -

Professional/technical 8 7 7 7 7 7

Institute for Microbial and Biochemical Technology

Allocation 1,832 2,565 2,072 2,517 2,517 2,109

Scientists 6 6 6 5 5 5
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Description of 

Research Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Support Staff 5 5 4 3 3 3

Administrative 1 1 1 1 1 1

Professional/technical 4 4 3 2 2 2

Engineered Properties & Structures

Allocation 2,583 3,633 2,795 2,820 2,820 2,843

Scientists 10 7 7 7 7 5

Support Staff 1 2 2 2 2 1

Administrative 1 1 1 1 1 -

Professional/technical - 1 1 1 1 1

Wood Anatomy & Forest Mycology in a Changing Global Environment

Allocation 277 293 302 315 315 298

Scientists 2 3 3 3 3 3

Support Staff - - - - - 1

Administrative - - - - - -

Professional/technical - - - - - 1

Fire Building Sciences

Allocation 780 874 850 880 880 843

Scientists 3 2 2 2 2 2

Support Staff 5 5 5 5 5 5

Administrative 1 1 1 1 1 1

Professional/technical 4 4 4 4 4 4

Durability &Wood Protection Research

Allocation 1,995 1,952 1,813 1,680 1,680 1,696

Scientists 6 8 8 8 8 7

Support Staff 12 13 13 11 11 7

Administrative 1 1 1 - - -

Professional/technical 11 12 12 11 11 7

Economics & Statistics Research 

Allocation 1,464 3,030 1,911 1,698 1,698 1,698

Scientists 8 8 8 6 6 6

Support Staff 1 1 1 1 1 1

Administrative 1 1 1 1 1 1

Professional/technical - - - - - -

Total Allocation 14,634 19,847 15,809 16,065 16,065 16,203

Total Support Staff 41 42 41 38 38 33

Administrative 7 7 7 6 6 5

Professional/technical 34 35 34 32 32 28

Total Scientists 55 55 53 50 50 47
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Forest Products Laboratory Facilities

Name Description

Number of 

Scientists

Number of 

Support Staff

Administrative

Number of 

Support Staff

Professional/

technical

Facility Costs 

(dollars in 

thousands)

Madison, WI Forest 

Products Lab

Complex of 14 

buildings colocated on the 

University of 

Wisconsin 49 6 86 $3,300

Wood Protection and 

Termite Laboratory Starkville, MS 4 1 4 100

International Institute of Tropical Forestry

The International Institute of Tropical Forestry (IITF) is dedicated to tropical forestry on an international level and 

develops and exchanges knowledge critical to sustaining tropical ecosystem benefits.

IITF Field Unit Allocations and Staffing by Science and Administrative Categories (dollars in thousands)

a

Includes funds from other Forest Service budget line items such as the National Fire Plan and the Joint Fire Sciences Program from the 

Wildland Fire Management main head.

International Institute of Tropical Forestry Research Programs (dollars in thousands)

Description of Research 

Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Forest and Rangeland Research

Allocation 3,024 2,773 2,689 2,670 2,670 1,460

Scientists 11 11 11 11 11 11

Support Staff 17 17 17 17 17 17

Administrative Support 1 1 1 1 1 2

Professional/technical 16 16 16 16 16 15

National Fire Plan

Allocation 100 100 100 99 99 80

Scientists 7 7 7 7 7 5

International Institute 

of Tropical Forestry

2015

Actual

2016

Actual

2017

Actual

2018

Actual 2019

Estimate 2020 Budget

Research 3,024 2,773 2,689 2,670 2,670 1,460

Other fundinga 2,410 2,552 1,917 1,903 1,903 1,219

Total Allocation 5,434 5,325 4,606 4,573 4,573 2,679

Staffing by Science and Administrative Categories 

Scientists 11 11 11 11 11 11

Support staff 17 18 18 18 18 17

Administrative Support 1 1 1 1 1 2

Professional/Technical 

Support 16 17 17 17 17 15

Breakout by Administrative and Research Allocations 

Administrative 

Allocation 1,416 1,394 1,286 1,277 1,277 1,201

Research Allocation 4,018 3,931 3,320 3,296 3,296 1,478

Total by Administrative 

& Research 

Allocations 5,434 5,325 4,606 4,573 4,573 2,679
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Description of Research 

Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Support Staff 93 93 93 92 92 75

Total Allocation 3,124 2,873 2,789 2,769 2,769 1,540

Total Support Staff 17 17 17 17 17 17

Administrative support 1 1 1 1 1 2

Professional/technical 16 16 16 16 16 15

Total Scientists 11 11 11 11 11 11

International Institute of Tropical Forestry Facilities (dollars in thousands)

Name Description

Number of 

Scientists

Number of 

Support Staff

Administrative

Number of 

Support Staff

Professional/Tec

hnical

Facility Costs 

(dollars in 

thousands)

International 

Institute of 

Tropical Forestry

Forest Service 

owned facilities 

on leased land 8 1 12 $369

Sabana Field 

Research Station

Forest Service 

owned Station 3 1 3 41

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 20-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)

a

Includes funds from other Forest Service budget line items such as the National Fire Plan and the Joint Fire Sciences Program from the 

Wildland Fire Management main head.

Northern Research Station

2015

Actual

2016

Actual

2017

Actual

2018

Actual 2019

Estimate 2020 Budget

Research & Development 55,027 51,043 51,226 51,828 51,828 38,929

Other fundinga 3,672 3,114 3,410 - - 2,366

Total Allocation 58,699 54,157 54,636 51,828 51,828 41,295

Staffing by Science and Administrative Categories 

Scientists 134 129 127 120 120 95

Support staff 308 269 252 240 240 201

Administrative 75 69 70 65 65 54

Professional/Technical 233 200 182 176 176 147

Breakout by Administrative and Research Allocations 

Administrative Allocation 8,381 7,936 7,138 6,668 6,668 5,915

Research Allocation 50,318 46,221 47,498 45,160 45,160 35,380

Total by Administrative & Research 

Allocations 58,699 54,157 54,636 51,828 51,828 41,295
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Northern Research Station Research Programs (dollars in thousands)

Description of Research 

Programa

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Ecology and Economic Sustainability of the Appalachian Forest in an Era of Globalization Research

Allocation $2,576 $2,719 $2,656 $2,561 $2,561 $2,036

Scientists 9 9 9 9 9 7

Support Staff 15 16 13 13 13 10

Administrative 1 1 1 1 1 1

Professional/technical 14 15 12 12 12 9

Sustaining Forests in a Changing Environment

Allocation 2,946 2,917 3,277 2,954 2,954 2,495

Scientists 12 12 12 10 10 8

Support Staff 15 10 10 9 9 7

Administrative 1 1 1 - - 1

Professional/technical 14 9 9 9 9 6

Ecology and Management of Invasive Species and Forest Ecosystems Research

Allocation 3,940 3,609 3,357 3,107 3,107 2,555

Scientists 11 10 10 10 10 8

Support Staff 23 21 20 18 18 12

Administrative 2 2 2 2 2 2

Professional/technical 21 19 18 16 16 10

Forest Inventory and Analysis (FIA) in the Northern Station

Allocation 14,536 15,163 15,582 15,010 15,010 13,732

Scientists 22 20 18 18 18 18

Support Staff 109 95 88 78 78 84

Administrative 3 3 5 5 5 4

Professional/technical 106 92 83 73 73 80

Climate, Fire and Carbon Cycle Analysis Research

Allocation 4,529 3,891 4,011 3,611 3,611 3,052

Scientists 13 12 11 11 11 8

Support Staff 16 17 15 15 15 10

Administrative 3 3 3 3 3 2

Professional/technical 13 14 12 12 12 8

Research on Ecosystem Change

Allocation 6,562 4,023 5,087 4,650 4,650 3,872

Scientists 17 13 14 14 14 9

Support Staff 26 18 16 14 14 13

Administrative 2 1 1 1 1 1

Professional/technical 24 17 15 13 13 12

Urban Forest, Human Health and Environmental Quality Research

Allocation 1,470 2,701 3,431 3,135 3,135 2,421

Scientists 3 11 11 11 11 7
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Description of Research 

Programa

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Support Staff 8 8 8 6 6 5

Administrative 1 1 1 1 1 1

Professional/technical 7 7 7 5 5 4

Social Science Supporting Natural Resource Management and Policy

Allocation 3,224 1,942 1,673 1,658 1,658 1,274

Scientists 11 7 7 7 7 5

Support Staff 7 3 3 3 3 2

Administrative 2 2 2 2 2 1

Professional/technical 5 1 1 1 1 1

Sustainable Management of Central Hardwoods, Ecosystems and Landscapes Research

Allocation 1,624 2,279 1,377 1,352 1,352 1,027

Scientists 6 6 5 5 5 4

Support Staff 5 2 3 3 3 2

Administrative - - - - - -

Professional/technical 5 2 3 3 3 2

Applied Ecosystem Research: Theory and Application of Scaling Science in Forestry

Allocation 2,032 1,636 1,734 1,604 1,604 1,320

Scientists 6 6 6 5 5 4

Support Staff 8 6 4 4 4 3

Administrative 2 1 1 1 1 1

Professional/technical 6 5 3 3 3 2

Hardwood Tree Improvement and Regeneration Center

Allocation 889 43 1,014 894 894 765

Scientists 4 3 4 3 3 3

Support Staff 1 2 2 2 2 1

Administrative - - - - - -

Professional/technical 1 2 2 2 2 1

Strategic Foresight Research 

Allocation 955 923 677 602 602 518

Scientists 3 3 3 3 3 2

Support Staff 2 2 2 - - -

Administrative 1 1 1 - - -

Professional/technical 1 1 1 - - -

Restoration and Conservation of Rural and Urban Forests Research

Allocation 4,749 4,537 4,467 4,022 4,022 3,163

Scientists 17 17 17 14 14 12

Support Staff 18 18 18 17 17 13

Administrative 2 2 2 2 2 1

Professional/technical 16 16 16 15 15 12
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Description of Research 

Programa

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Total Allocation 50,032 46,383 48,343 45,160 45,160 38,230

Total Support Staff 253 218 202 182 182 162

Administrative 20 18 20 18 18 15

Professional/ technical 233 200 182 164 164 147

Total Scientists 134 129 127 120 120 95

a Facilities without funding in FY2020 will be eliminated leaving no personnel in the facility. Facilities with funding will focus on FIA or fire 

research and will be a part of one of the newly developed research stations.

Northern Research Station Facilities (dollars in thousands)

Name Description

Number of 

Scientists

Number of 

Support Staff

Administrative

Number of 

Support Staff

Professional/

technical

Facility Costs 

(dollars in 

thousands)

Hamden/Ansonia, CT FS owned lab, admin 

offices, and the 

Ansonia Quarantine

lab 3 1 9 $150

Evanston, IL FS leased admin 

space 4 2 2 140

West Lafayette, IN Purdue University 

admin offices and 

labs 4 - 2 -

Amherst, MA University of 

Massachusetts admin 

offices 4 - 1 90

Baltimore, MD FS leased admin

Space 3 1 6 130

Orono/Bradley, ME University of Maine 

admin office 1 - - -

Lansing, MI FS leased admin

space 5 1 3 190

Houghton, MI FS owned lab and 

admin offices on 

Michigan Tech 

campus 3 1 5 70

Grand Rapids, MN FS owned lab and 

admin offices 4 2 9 80

St. Paul, MN

FS owned lab and 

admin offices on 

University of MN 

campus 14 15 18 160

Columbia, MO University of MO 

Admin and Lab 

offices 5 - 3 -

Durham, NH FS owned lab and 

admin offices on 

University of NH 

campus 13 3 13 80

Syracuse, NY SUNY Admin Office 1 - 5 25

New York, NY FS leased admin

space 3 - - 90

Delaware, OH FS owned lab and 

admin offices 10 5 7 75
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Name Description

Number of 

Scientists

Number of 

Support Staff

Administrative

Number of 

Support Staff

Professional/

technical

Facility Costs 

(dollars in 

thousands)

Newtown Square, PA FS leased admin 

space 6 15 9 440

Warren, PA FS owned lab and 

admin offices 6 1 3 50

Burlington, VT FS leased lab and 

admin offices on 

UVM campus 3 - 2 32

Madison, WI FS owned lab and 

admin offices 5 3 6 -

Rhinelander, WI FS owned lab and 

admin offices 7 2 5 80

Morgantown, WV FS owned lab and 

admin offices on 

WVU campus 5 2 8 130

Parsons, WV FS owned lab and 

admin offices 3 2 9 40

Princeton, WV FS owned lab and 

admin offices 4 - 5 26

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)

a Facilities without funding in FY 2020 will be eliminated leaving no personnel in the facility. Facilities with funding will focus 

on FIA or fire research and will be a part of one of the newly developed research stations

Pacific Northwest 

Research Station

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Research & Development $40,546 $40,346 $39,808 $39,529 $39,529 $35,812

Other fundinga 6,874 7,694 6,321 6,277 6,277 5,506

Total Allocation 47,420 48,040 46,129 45,806 45,806 41,318

Staffing by Science and Administrative Categories

Scientists 79 76 75 74 74 77

Support staff 216 237 242 240 240 242

Administrative 68 73 69 68 68 69

Professional/Technical 148 164 173 172 172 173

Breakout by Administrative and Research Allocations

Administrative Allocation 15,281 14,483 11,397 11,314 11,314 10,318

Research Allocation 32,139 33,557 34,732 34,492 34,492 31,000

Total Administrative & 

Research Allocations 47,420 48,040 46,129 45,806 45,806 41,318
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Pacific Northwest Research Station Research Programs (dollars in thousands)

Description of Research 

Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate 2020 Budget

Ecological Process and Function

Allocation 4,976 5,268 4,982 4,947 4,947 4,815

Scientists 17 17 18 18 18 18

Support Staff 21 23 21 21 21 21

Administrative 1 2 2 2 2 2

Professional/technical 20 21 19 19 19 19

Goods, Services and Values

Allocation 3,330 3,588 3,164 3,141 3,141 3,058

Scientists 14 14 14 14 14 14

Support Staff 2 3 3 3 3 3

Administrative 1 2 2 2 2 2

Professional/technical 1 1 1 1 1 1

Land and Watershed Management

Allocation 4,589 4,756 4,873 4,839 4,839 4,709

Scientists 15 14 15 15 15 15

Support Staff 23 26 23 23 23 23

Administrative 2 2 1 1 1 1

Professional/technical 21 24 22 22 22 22

Forest Inventory and Analysis/Resource Monitoring and Assessment

Allocation 11,902 13,929 14,374 14,273 14,273 13,893

Scientists 13 12 12 12 12 12

Support Staff 86 93 104 103 103 104

Administrative 4 5 5 5 5 5

Professional/technical 82 88 99 99 99 99

Threat Characterization and Management

Allocation 2,682 2,360 2,228 2,212 2,212 2,153

Scientists 18 17 16 16 16 16

Support Staff 13 15 14 14 14 14

Administrative 2 1 2 2 2 2

Professional/technical 11 14 12 12 12 12

Total Allocation 27,479 29,901 29,621 29,412 29,412 28,628

Total Support Staff 145 160 165 164 165 165

Administrative 10 12 12 12 12 12

Professional/technical 135 148 153 152 153 153

Total Scientists 77 74 75 75 75 75
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Pacific Northwest Research Station – Facilities

Name Description

Number of 

Scientists

Number of 

Support Staff

Administrative

Number of 

Support Staff

Professional/

technical

Facility 

Costs 

(dollars in 

thousands)

Station Directors Office -

Portland

GSA Leased Space

- 23 10 $410

Anchorage GSA Leased Space 1 1 27 261

Corvallis Owned Space 22 10 25 1,162

Fairbanks University of 

Alaska Leased 

Space 1 - - -

Juneau Owned Space 4 4 4 154

La Grande Owned Space 4 5 10 128

Olympia Owned Space 9 3 11 157

Portland GSA Leased Space 13 5 27 628

Prineville NFS Leased Space - 3 3 50

Seattle GSA Leased Space 13 3 5 484

Sitka Leased Space 2 - - 11

Wenatchee Owned Space 5 4 2 177

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.

Pacific Southwest Research Station Field Unit Allocations and Staffing by Science and Administrative Categories

(dollars in thousands)

PSW Research Station

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate

2020

Budget

Research & Development 19,746 17,381 17,500 18,887 18,887 12,066

Other fundinga 5,081 3,979 3,100 245 245 5,211

Total Allocation 24,827 21,360 20,600 19,132 19,132 17,277

Staffing by Science and Administrative Categories 

Scientists 38 38 37 35 35 33

Support staff 116 115 115 112 112 109

Administrative 37 39 40 39 39 38

Professional/Technical 79 76 75 73 73 71

Breakout by Administrative and Research Allocations 

Administrative Allocation 5,500 5,000 5,000 4,400 4,400 4,364

Research Allocation 19,327 16,361 15,600 14,732 14,732 12,913

Total Admin and Research 

Allocation 24,827 21,361 20,600 19,132 19,132 17,277

a

Includes funds from other Forest Service budget line items such as the National Fire Plan and the Joint Fire Sciences Program from the 

Wildland Fire budget line item.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Pacific Southwest Research Station Research Programs (dollars in thousands)

Description of Research

Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate

FY 2020

Budget

Conservation of Biodiversity

Allocation 4,000 4,000 3,700 3,674 3,674 3,308

Scientists 10 10 8 8 8 7

Support Staff 32 31 30 30 30 28

Administrative 3 3 3 3 3 3

Professional/technical 29 28 27 27 27 25

Ecosystem Function and Health

Allocation 4,150 4,100 4,200 4,170 4,170 3,675

Scientists 11 10 10 10 10 9

Support Staff 27 25 25 25 25 23

Administrative 2 2 2 2 2 2

Professional/technical 25 23 23 23 23 21

Fire and Fuels

Allocation 2,500 2,700 2,600 2,582 2,582 2,389

Scientists 6 7 7 7 7 6

Support Staff 13 13 13 13 13 13

Administrative 1 1 1 1 1 1

Professional/technical 12 12 12 12 12 12

Institute of Pacific Islands Forestry 

Allocation 2,000 2,000 2,100 2,085 2,085 1,929

Scientists 6 6 7 7 7 7

Support Staff 14 14 14 14 14 14

Administrative 2 2 2 2 2 2

Professional/technical 12 12 12 12 12 12

Urban Ecosystems and Social Dynamics 

Allocation 1,200 1,200 1,300 1,291 1,291 1,134

Scientists 5 5 5 5 5 4

Support Staff 2 2 2 2 2 2

Administrative 1 1 1 1 1 1

Professional/technical 1 1 1 1 1 1

Total Allocation 13,850 14,000 13,900 13,802 13,802 12,435

Total Support Staff 88 85 84 82 82 80

Administrative 9 9 9 9 9 9

Professional/technical 79 76 75 75 75 71

Total Scientists 38 38 37 37 37 33
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Pacific Southwest Research Station – Facilities

Name Description Scientists

Support Staff

Administrative

Support 

Staff

Professional

/technical

Facility Costs

(dollars in 

thousands)

Albany, CA co-located with ARS 3 16 5 $105

Arcata, CA co-located with Humboldt 

State University –

2 1 16 75

Davis, CA near University of 

California-Davis 10 6 6 495

Fresno, CA co-located with Cal StateFresno 1 - 3 90

Hilo, HI Location of the Institute for 

Pacific Island Forestry

7 4 11 210

Placerville, CA Houses the Institute of 

Forest Genetics - 5 2 85

Redding, CA co-located with Forest 

Service Region 5 4 1 8 290

Riverside, CA near University of 

California - Riverside 9 3 14 150

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 - in 12 

non-coastal western States. This Station includes 52 National Forests, 17 National Grasslands, and over 101 million 

acres of Forest Service managed lands.

Rocky Mountain Research Station Field Unit Allocations and Staffing by Science and Administrative 

Categories (dollars in thousands)

Rocky Mountain Research 

Station

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate

2020 

Budget

Research & Development $41,049 $37,444 $37,536 $42,961 $42,961 $29,820

Other fundinga 20,028 29,975 24,640 16,487 16,487 20,379

Total Allocation 61,077 67,419 62,176 59,448 59,448 50,199

Staffing by Science and Administrative Categories 

Scientists 93 94 96 95 95 98

Support staff 286 260 264 262 262 264

Administrative 37 37 34 34 34 33

Professional/Technical 249 223 230 228 228 231

Breakout by Administrative and Research Allocations 

Administrative Allocation 15,249 16,698 13,619 14,369 14,369 11,375

Research Allocation 45,828 50,721 48,557 45,079 45,079 38,824

Total by Administrative & 

Research Allocations 61,077 67,419 62,176 59,448 59,448 50,199

a

Includes funds from other Forest Service budget line items such as the National Fire Plan and the Joint Fire Sciences Program from the 

Wildland Fire budget line item.
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Rocky Mountain Research Station Research Programs (dollars in thousands)

Description of Research 

Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate

2020 

Budget

Aldo Leopold Wilderness Research Institute

Allocation $1,198 $1,749 $1,605 $1,356 $1,356 $1,123

Scientists 3 3 3 3 3 3

Support Staff 6 5 5 5 5 5

Administrative 1 1 1 1 1 1

Professional/technical 5 4 4 4 4 4

Air, Water and Aquatics Environments 

Allocation 4,479 4,411 3,880 4,261 4,261 2,849

Scientists 14 14 15 15 15 14

Support Staff 34 25 24 24 24 24

Administrative 4 4 4 4 4 4

Professional/technical 30 21 20 20 20 20

Fire, Fuel and Smoke 

Allocation 7,029 7,604 6,694 6,339 6,339 5,267

Scientists 16 17 16 16 16 18

Support Staff 49 51 56 56 56 58

Administrative 9 9 8 8 8 8

Professional/technical 40 42 48 48 48 50

Forest Inventory and Analysis 

Allocation 10,829 12,865 12,000 9,533 9,533 10,785

Scientists 3 3 4 4 4 4

Support Staff 103 96 97 96 96 103

Administrative 7 7 7 7 7 7

Professional/technical 96 89 90 89 89 96

Forest and Woodlands Ecosystems 

Allocation 7,044 6,143 6,538 5,803 5,803 5,011

Scientists 17 17 18 18 18 17

Support Staff 29 28 26 26 26 23

Administrative 5 5 4 4 4 3

Professional/technical 24 23 22 22 22 20

Grassland, Shrubland, and Desert Ecosystems

Allocation 3,468 3,511 3,973 3,582 3,582 2,739

Scientists 13 13 15 15 15 16

Support Staff 23 19 19 19 19 17

Administrative 5 5 5 5 5 5

Professional/technical 18 14 14 14 14 12

Human Dimensions 

Allocation 3,378 3,662 4,042 4,337 4,337 3,179

Scientists 14 14 15 15 15 16

Support Staff 13 16 16 16 16 12
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Description of Research 

Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate

2020 

Budget

Administrative 2 2 1 1 1 1

Professional/technical 11 14 15 15 15 11

Wildlife and Terrestrial Ecosystems 

Allocation 3,057 3,178 2,617 3,264 3,264 1,677

Scientists 11 11 10 10 10 10

Support Staff 29 20 21 21 21 22

Administrative 4 4 4 4 4 4

Professional/technical 25 16 17 17 17 18

Allocation 5,346 7,598 7,208 6,604 6,604 6,194

Total Allocation 45,828 50,721 48,557 45,079 45,079 38,824

Total Support Staff 286 260 264 263 263 264

Administrative 37 37 34 34 34 33

Professional/technical 249 223 230 229 229 231

Total Scientists 91 92 96 96 96 98

Rocky Mountain Research Station – Facilities

Name Description

Number 

of 

Scientists

Number of 

Support Staff

Administrative

Number of Support 

Staff

Professional/technical

Facility Costs 

(dollars in 

thousands)

Albuquerque, NM Forestry Sciences 

Lab 2 2 5 $158

Boise, ID Aquatic Sciences Lab 6 3 19 210

Bozeman, MT Forestry Sciences 

Lab 4 1 7 95

Flagstaff, AZ Southwest Forest 

Sciences Complex 7 3 10 226

Fort Collins, CO Forestry Sciences 

Lab 21 17 42 294

Logan, UT Forestry Sciences 

Lab 1 2 2 100

Missoula, MT Fire Sciences Lab 17 6 41 300

Missoula, MT Forestry Sciences 

Lab 14 4 27 219

Moscow Forestry Sciences 

Lab 9 2 14 165

Ogden Forestry Sciences 

Lab 3 7 35 508

Provo Shrub Sciences Lab 4 1 5 122

Rapid City Forest and Grassland 

Research Lab 3 1 1 68

Reno Forestry Sciences 

Lab 1 - 1 57
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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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. 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

2015

Actual

2016

Actual

2017

Actual

2018

Actual 2019

Estimate 2020 Budget

Research & Development 48,187 46,414 47,873 45,863 45,863 28,787

Other fundinga

3,753 3,797 1,798 1,709 1,709 2,541

Total Allocation 51,940 50,211 49,671 47,572 47,572 31,328

Staffing by Science and Administrative Categories 

Scientists 102 105 106 87 87 103

Support staff 227 225 229 226 226 193

Administrative 46- 45- 47- 46 46 35

Professional/Technical 181- 180- 182- 180 180 158

Breakout by Administrative and Research Allocations 

Administrative Allocation 7,732 7,156 6,861 5,416 5,416 4,466

Research Allocation 44,208 43,055 42,810 42,156 42,156 26,862

Total Administrative & 

Research Allocations 51,940 50,211 49,671 47,572 47,572 31,328

a

Includes funds from other Forest Service budget line items such as the National Fire Plan and the Joint Fire Sciences Program from the 

Wildland Fire budget line item.

Southern Research Station Research Programs (dollars in thousands)

Description of Research 

Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate

2020

Budget

Center for Bottomland Hardwoods 

Allocation $5,138 $4,323 $4,585 $3,829 $3,829 $2,310

Scientists 14 15 15 11 11 12

Support Staff 19 18 18 14 14 15

Administrative 1 1 1 1 1 3

Professional/technical 17 17 17 13 13 12

Center for Forest Disturbance Science 

Allocation 2,880 2,689 1,235 2,458 2,458 1,700

Scientists 7 7 7 6 6 8

Support Staff 11 12 12 12 12 12

Administrative 3 2 2 2 2 5

Professional/technical 8 10 10- 10 10 7

Upland Hardwood Ecology and Management 

Allocation 2,603 2,214 2,674 2,364 2,364 1,399

Scientists 7 8 8 7 7 7

Support Staff 17 15 15 10 10 10

Administrative 3 2 2 1 1 2
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Description of Research 

Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate

2020

Budget

Professional/technical 14 13 13 9 9 8

Restoring and Managing Longleaf Pine Ecosystems 

Allocation 2,154 1,881 1,814 1,679 1,679 928

Scientists 4 5 5 4 4 4

Support Staff 8 7 7 7 7 7

Administrative - - - - - 1

Professional/technical 8 7 7 7 7 6

Southern Pine Ecology and Management 

Allocation 2,626 2,278 2,528 2,182 2,182 1,262

Scientists 5 5 5 3 3 7

Support Staff 15 15 15 12 12 9

Administrative 3 3 3 2 2 2

Professional/technical 12 12 12 10 10 7

Forest Genetics and Ecosystems Biology 

Allocation 3,016 2,660 2,563 2,122 2,122 1,299

Scientists 5 6 6 6 6 6

Support Staff 13 12 12 10 10 12

Administrative 1 1 1 - - 1

Professional/technical 12 11 11 10 10 11

Center for Forest Watershed Science 

Allocation 3,329 2,820 3,279 2,668 2,668 1,495

Scientists 12 12 12 8 8 12

Support Staff 18 17 17 20 20 17

Administrative 2 2 2 2 2 2

Professional/technical 16 15 15 18 18 15

Insects, Diseases, and Invasive Plants

Allocation 3,773 3,226 3,063 2,797 2,797 1,572

Scientists 9 8 8 6 6 8

Support Staff 13 13 13 14 14 12

Administrative 1 1 1 - - 1

Professional/technical 12 12 12 14 14 11

Forest Operations Research to Achieve Sustainable Management 

Allocation 1,047 957 968 816 816 513

Scientists 2 2 2 2 2 2

Support Staff 5 5 5 4 4 4

Administrative - - - - - -

Professional/technical 5 5 5 4 4 4

Utilization of Southern Forest Resources 

Allocation 1,889 1,698 1,561 1,373 1,373 896
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Description of Research 

Program

2015

Actual

2016

Actual

2017

Actual

2018

Actual

2019

Estimate

2020

Budget

Scientists 4 4 4 2 2 3

Support Staff 5 5 5 3 3 5

Administrative - - - - - 1

Professional/technical 5 5 5 3 3 4

Forest Inventory and Analysis

Allocation 15,268 17,661 18,184 17,772 17,772 13,145

Scientists 13 13 14 11 11 12

Support Staff 78 81 85 64 64 69

Administrative 7 7 7 7 7 9

Professional/technical 71 74 78 57 57 60

Forest Economics and Policy

Allocation 1,689 1,585 1,221 1,294 1,294 893

Scientists 5 5 5 4 4 6

Support Staff 6 6 6 5 5 4

Administrative 4 4 4 2 2 2

Professional/technical 2 2 2 3 3 2

Eastern Forest Environmental Threat Assessment Center 

Allocation 4,058 4,024 3,634 3,691 3,691 2395

Scientists 8 8 8 8 8 9

Support Staff 13 13 13 11 11 11

Administrative 3 3 3 2 2 3

Professional/technical 10 10 10 9 9 8

Center for Integrated Forest Science 

Allocation 925 878 1,196 1,145 1,145 659

Scientists 2 2 2 3 3 2

Support Staff - - 1 - - 1

Administrative - - 1 - - 1

Professional/technical - - - - - -

Integrating Human and Natural Systems 

Allocation 1,545 1,317 1,166 1,382 1,382 862

Scientists 5 5 5 5 5 5

Support Staff 5 5 5 5 5 5

Administrative 2 2 2 - - 2

Professional/technical 3 3 3 5 5 3

Total Allocation 51,940 50,211 49,671 47,572 47,572 31,328

Total Support Staff 227 225 229 226 226 193

Administrative 45 45 48 46 46 35

Professional/technical 182 180 181 180 180 158

Total Scientists 102 105 106 87 87 103
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Southern Research Station – Facilities

Name Description Scientists

Support Staff

Administrative

Support 

Staff

Professional/

Technical

Facility Costs 

(dollars in 

thousands)

Asheville, NC FS owned 

9 26 22 $251

Bent Creek/Koen

Asheville, NC

FS owned lab, 

greenhouse & 

administrative offices 4 1 2 9

Coweeta Otto, NC FS owned hydrologic 

lab 7 1 5 79

Knoxville, TN Leased facility 10 3 23 383

Research Triangle Park, 

Durham, NC

FS owned lab & 

greenhouses 12 4 6 2,086

Auburn/Escambia

Auburn, AL

FS owned lab & 

greenhouse 7 1 6 7

Crossett Experimental Forest, 

Crossett, AR

FS owned 

administrative office 2 - - 5

Athens/Hitchiti

Athens, GA

FS owned lab & 

administrative offices 13 7 10 726

Pineville/Palustris

Pineville, LA

FS owned lab & 

greenhouse 11 2 15 5

Saucier/Harrison

Saucier, MS

FS owned lab & 

greenhouse 2 1 3 14

Stoneville/Oxford

Stoneville/Oxford, MS

FS owned lab & 

greenhouse 12 3 12 34

Santee Cordesville, SC FS owned lab & 

administrative Offices 2 1 2 2

Savannah River

New Ellenton, SC

FS owned 

administrative office 1 1 1 1

Nacogdoches

Nacogdoches, TX

FS owned lab

7 1 1 39

Blacksburg

Blacksburg, VA

FS owned lab

6 - 1 -
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Forest Service Research and Development Expenditures by State (dollars in thousands)

State Station FY 2017 Actual FY 2018 Actual FY 2019 Estimate FY 2020 Budget

ALABAMA SRS $2,471 $2,454 $2,454 $1,646

ALASKA PNW 6,919 6,870 6,870 6,210

ARIZONA RMRS 2,652 2,633 2,633 2,036

ARKANSAS SRS 2,052 2,038 2,038 1,346

CALIFORNIA PSW/PNW 17,950/2,768 17,824/2,748 17,824/2,748 15,374/2,898

COLORADO RMRS 11,786 11,703 11,703 9,050

CONNECTICUT NRS 1,771 1,759 1,759 1,156

DELAWARE NRS - - 64 64

FLORIDA SRS 816 810 810 596

GEORGIA SRS 3,329 3,305 3,305 2,212

HAWAII PSW 2,650 2,588 2,588 2,389

IDAHO RMRS 4,697 4,664 4,664 3,606

ILLINOIS NRS 1,171 1,163 1,163 894

INDIANA NRS 1,014 1,007 1,007 766

IOWA NRS - - 64 64

KANSAS RMRS - - 64 64

KENTUCKY SRS 506 502 502 341

LOUISIANA SRS 3,926 3,898 3,898 2,652

MAINE NRS 234 232 232 163

MARYLAND NRS 1,839 1,826 1,826 1,232

MASSACHUSETTS NRS 1,243 1,234 1,234 999

MICHIGAN NRS 3,052 3,031 3,031 2,440

MINNESOTA NRS 10,588 10,514 10,514 8,095

MISSISSIPPI SRS 5,673 5,633 5,633 3,682

MISSOURI NRS 2,359 2,342 2,342 1,872

MONTANA RMRS 11,325 11,246 11,246 8,696

NEBRASKA RMRS - - 64 64

NEVADA RMRS 287 285 285 220

NEW HAMPSHIRE NRS 5,436 5,398 5,398 4,302

NEW JERSEY NRS 286 284 284 219

NEW MEXICO RMRS 618 615 615 475

NEW YORK NRS 2,819 2,799 2,799 2,328

NORTH CAROLINA SRS 9,193 9,128 9,128 6,170

NORTH DAKOTA RMRS - - 64 64

OHIO NRS 3,753 3,727 3,727 2,598

OKLAHOMA RMRS/SRS -/92 -/91 -/91 -/77

OREGON PNW 25,832 25,651 25,651 23,597

PENNSYLVANIA NRS 9,693 9,623 9,623 7,192

PUERTO RICO IITF/SRS 2,689/273 2,670/271 2,670/271 1,460/245

RHODE ISLAND NRS - - 64 64

SOUTH CAROLINA SRS 1,933 1,919 1,919 1,668

SOUTH DAKOTA RMRS 782 776 776 601

TENNESSEE SRS 14,688 14,585 14,585 13,029

TEXAS SRS 1,691 1,679 1,679 1,212

UTAH RMRS 13,633 13,537 13,537 10,468
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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In FY 2020 expenditures will come from the newly developed research station.

VERMONT NRS 667 62 62 379

VIRGINIA SRS 1,068 1,060 1,060 723

WASHINGTON PNW 25,832 25,651 25,651 23,597

WEST VIRGINIA NRS 4,579 4,546 4,546 3,580

WISCONSIN FPL 22,373 22,216 22,216 22,483

WISCONSIN NRS 4,132 4,103 4,103 3,143

WYOMING RMRS 127 126 126 2,985
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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STEWARDSHIP CONTRACTING

Background

This special exhibit is included to address requirements of the 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 through the use of wood removed through 

restoration activities, including using woody biomass for energy, in addition to sustaining traditional markets. 

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 best value selection using criteria such as capability, use of local workforce, 

creation of jobs, and price is intended to create green jobs, promote a diverse forest products industry, and support 

sustainable communities and the forest contractor infrastructure needed to perform critical restoration work.

If the offset value of timber or other forest products from stewardship sales exceeds the value of resource 

improvement treatments conducted to accomplish land management objectives, 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 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 reestablishing native vegetation.

While the number of stewardship projects changes from year to year, the agency and its partners have a better 

understanding of how to best use stewardship contracts, which has resulted in projects of larger size.

In FY 2018, the agency continued to inform employees, partner organizations, and contractors about stewardship 

contracting through brochures, local field trips, and 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. To improve agency understanding and use of this authority, the Forest Service contracted to 

expand the national stewardship contracting and agreements training. Offered once a year for the previous three 

years, this training was presented 12 times across the country to nearly 300 employees and a handful of partners.

The Consolidated Appropriations Act of 2018 amended the stewardship authority to allow contracts up to 20 years 

in locations meeting certain conditions, while remaining 10 years for all others, and to allow the cost of cancellation 

ceilings to be allocated in economically viable stages, relieving the forest unit of a large obligation in a single year. 

The agency partnered with the National Forest Foundation to host a virtual workshop seeking input from 

stakeholders to aid successful use of the new authority. Some Regions are developing 20-year contracts and the 

national headquarters is developing policy to maximize successful outcomes.

Specific Accomplishments

Stewardship contracting has proved to be a valuable tool in many locations to implement restoration activities and 

meet multiple land management objectives. Stewardship contracting allows the Forest Service to focus on a variety 

of land management activities, such as hazardous fuels reduction, wildlife habitat improvement, forest health 

improvement, and non-native invasive plant species control.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Table 1 below shows specific actual accomplishments during FY 2015 to FY 2018. Table 2 below shows the acres 

awarded, number of contract or agreements awarded, and volume awarded from FY 2003 to FY 2018. 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 fuels reduction treatment can also improve wildlife habitat. These accomplishments not only result in 

ecosystem benefits, but also in 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 community ownership in the project, 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.

The Forest Service has contracted with the Pinchot Institute for Conservation to conduct a programmatic multiparty 

monitoring process for FY 2018. 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 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 2017 report, Pinchot concluded that partnerships 

and working relationships were generally strengthened by long-term work towards common goals. The results of the 

FY 2018 programmatic monitoring efforts by the Pinchot Institute will be available in the spring of 2019. When 

available, the entire report will be online at: http://www.pinchot.org/gp/Stewardship_Contracting

Table 1. Actual Stewardship Contracting Accomplishments (FY 2015 to FY 2018)

Accomplishment FY 2015

Actual

FY 2016 

Actual

FY 2017 

Actual

FY 2018 

Actual

Acres of forest vegetation established 6,865 5,050 4,312 3,591

Acres of forest vegetation improved 44,702 42,634 45,346 24,938

Acres of noxious weeds/invasive plant treatments 3,024 5,434 4,279 3,879

Acres of wildlife habitat restored or improved 66,744 22,133 14,031 33,693

Miles of stream habitat restored or enhanced 82 48 81 110

Miles of roads decommissioned 29 10 3 14

Volume of timber sold (million board feet (MMBF)) 829 718 855 754

Green tons of biomass made available for energy 

production

323,830 217,698 222,636 229,958

Acres of hazardous fuels treated to reduce the risk of 

catastrophic fires (Non-WUI)

66,169 79,694 90,968 31,695

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

hazardous fuels treated 73,072 96,387 118,559 163,332

Number of stewardship contracts/agreements 

contributing to watersheds in fully functioning 

condition 1 2 5 5
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Table 2. Acres Awarded, Number of Contract or Agreements Awarded, and Volume Awarded 

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

2013 171,767 195 709,000

2014 177,208 161 816,000

2015 166,317 168 829,000

2016 166,462 225 718,000

2017 153,868 221 855,000

2018 161,947 266 793,374
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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TRANSITION TO SECOND GROWTH IN ALASKA

Background

This exhibit is not required by Congressional direction but is included to provide an update on the status of the 

transition to second growth in Alaska.

Overview

The State of Alaska and the Forest Service State and Private Forestry, entered into a Challenge Cost Share 

Agreement (CCSA) to conduct a young growth forest inventory and support workforce development for the timber 

industry. The inventory was completed in mid-October 2018, and local residents have been successfully trained and 

are now working in various forestry-related jobs in Southeast Alaska. The Forest Service, State, and other 

landowners continue complementary efforts to enable a successful transition to second-growth management in 

Alaska.

Inventory Efforts

Crews employed by the State and partner organizations completed data collection on more than 33,700 acres of 

young-growth stands aged 55 years or older on Prince of Wales and surrounding islands. Forest Service and State 

personnel are summarizing and analyzing the data collected into stand-level analyses of logging feasibility to 

determine how many of those older young-growth acres will be operable during near-term project implementation.

More than 11,000 acres of young growth aged 40-54 years have also been inventoried. The data from completed 

inventories include species composition, volume per acre, vegetation composition, stand observations, stream 

crossing points, presence of disease, wind throw, and more. The information will be used to support transparent, 

informed decision making by forest managers and stakeholders as they seek to develop projects to meet transition 

objectives.

To develop a forestry workforce in small rural communities, a two-week Forestry Workforce Academy was offered 

in fiscal years 2016 and 2017. Seven Southeast Alaska residents were trained and hired for inventory work under the 

agreement in FY 2016. The FY 2017 Academy resulted in the State and Forest Service hiring six more individuals 

for the inventory cruise. At least one other individual was hired in early FY 2018 by the Forest Service through 

Alaska National Interest Lands Conservation Act hiring authorities and assigned to a stream survey crew supporting 

the inventory effort.

Old-Growth Bridge Timber

Forest Service crews at 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 was signed in the second quarter of FY 2017, with 

implementation of specific tasks during the FY 2017 field season. An updated MOU with additional training and 

mentoring tasks is anticipated in FY 2019 and beyond.

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 the 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 is also evaluating the 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. This effort is led by Pacific Northwest 

Research Station personnel. A study plan has been developed and personnel are pursuing outside funding and a 

suitable non-profit to assist with project execution and management.

The Forest Service Alaska Region and the State of Alaska entered into a Master Good Neighbor Authority 

agreement in FY 2017. Under the first Supplemental Project Agreement, the Koscuisko Young Growth Timber Sale 

was offered and awarded by the State of Alaska in late FY 2017 and operations have commenced. Two additional 

Supplemental Project Agreements were developed in FY 2018, one on the Tongass and one on the Chugach 
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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National Forest. The Good Neighbor Authority provides an excellent opportunity for increased management 

activities in conjunction with the State of Alaska where projects are mutually beneficial.

The Forest Service is continuing the Tongass-Wide Young Growth Study, begun in 2002, to increase knowledge of 

silvicultural practices for various purposes including young-growth management.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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UNLIQUIDATED OBLIGATIONS

Background

This exhibit is included to provide a display of Forest Service unliquidated obligation (ULO) balances.

Overview

Unliquidated Obligations are defined as the balance remaining from orders placed; contract and other binding 

agreements awarded, or services rendered after making any payments or processing deobligations. The following 

table contains the status of Forest Service unliquidated obligation balances in prior fiscal years for appropriated 

funds (regular and emergency) as of September 30, 2018.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

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Forest Service Status of ULO Balances in Prior Fiscal Years as of September 30, 2018 (dollars in thousands)

Forest Service Appropriation Budget Line Item/Program

FY 2016 and 

Prior

FY 2017 FY 2018 Total 

ULO 

Balance

Forest and Rangeland Research National Fire Plan Research and 

Development $1,069 $3,945 - $5,014

Forest Inventory and Analysis - 8,638 $16,701 25,339

R&D Forest Products Lab - 1,540 - 1,540

R&D Joint Fire Sciences Program 2,135 1,665 - 3,800

Other Forest and Rangeland Research 

Programs (Includes Cost Pools) 16,765 19,115 54,508 90,388

Forest and Rangeland Research Total 19,969 34,903 71,209 126,081

State and Private Forestry Cooperative Fire Protection – National 

Fire Capacity 12,864 - 69,494 82,358

Forest Health Management- Cooperative 

Lands Forest Health Management 16,285 11,615 26,102 54,002

Forest Health Management - Federal 

Lands Forest Health Management 4,870 2,925 13,285 21,080

International Forestry 3,253 2,591 4,975 10,819

Landscape Scale Restoration 16,043 11,003 13,764 40,810

Cooperative Forestry - Community Forest 

and Open Space Conservation 2,196 904 4,000 7,100

Cooperative Forestry - Working Forest 

Lands 9,263 6,101 11,962 27,326

Cooperative Forestry - Urban and 

Community Forestry 12,722 12,664 20,430 45,816

Cooperative Fire Protection – Rural Fire 

Capacity 1- - 15,993 15,993

Other State and Private Forestry Programs 

(Includes Cost Pools) 1,234 342 2,643 4,219

State and Private Forestry Total 78,730 48,145 182,648 309,523

National Forest System Law Enforcement Operations 1,960 1,925 10,732 14,617

Land Ownership Management 3,400 2,581 10,693 16,674

Minerals and Geology Management 5,234 4,916 15,072 25,222

Land Management Planning 2,653 - - 2,653

Grazing Management 2,165 2,376 5,014 9,555

Restoration Partnerships 54 - - 54

Integrated Resource Restoration 11,832 8,564 - 20,396

Recreation, Heritage, and Wilderness 10,167 9,622 25,979 45,768

Forest Products 8,131 8,857 35,207 52,195

Vegetation and Watershed Management 8,497 9,878 28,256 46,631

Wildlife and Fish Habitat Management 4,205 4,459 16,863 25,527

Hazardous Fuels, Biomass Grants & 

Reduction 84,879 69,156 137,780 291,815

Collaborative Forest Landscape 

Restoration Fund 4,128 5,483 13,293 22,904

Other National Forest System Programs 

(Includes Cost Pools) 9,110 15,360 82,556 107,026

National Forest System Total 156,415 143,177 381,445 681,037
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

245

Forest Service Appropriation Budget Line Item/Program

FY 2016 and 

Prior

FY 2017 FY 2018 Total ULO 

Balance

Wildland Fire Management Fire Operations - Wildland Fire 

Preparedness 19,066 19,789 115,715 154,570

Fire Operations - Wildland Fire 

Suppression Operations 99,961 97,051 574,061 771,073

Other Operations - Collaborative Forest 

Landscape Restoration Fund 80,100 - - 80,100

Other Operations – National Fire 

Capacity 57,996 48,034 - 106,030

Other Operations - Rural Fire Capacity 5,425 9,175 - 14,600

Other Wildland Fire Management 

Programs (Includes Cost Pools) 4,723 - 55,628 60,351

Wildland Fire Management 

Total 267,271 174,049 745,404 1,186,724

Capital Improvement and 

Maintenance

Capital Improvements and Mntce -

Facilities 7,811 5,697 59,559 73,067

Capital Improvements and Mntce - Roads 6,263 8,422 54,295 68,980

Capital Improvements and Mntce - Trails 3,852 3,655 14,179 21,686

Integrated Resource Restoration - Legacy 

Roads and Trails 4,636 3,885 - 8,521

Capital Improvements and Mntce -

Deferred Mntce 1,119 - - 1,119

Other Capital Improvement & Mntce 

Programs (Includes Cost Pools) 1,358 1,470 10,967 13,795

Capital Improvement and Maintenance Total 25,039 23,129 139,000 187,168

Land Acquisition Land Acquisition - Acquisition 

Management - 209 523 732

Land Acquisition - Cash Equalization

- - 101 101

Land - Critical Inholding

- 428 669 1,097

Land Acquisition 11,031 1,787 4,372 17,190

Land Acquisition - Rec Access

- 1,816 290 2,106

Land Acquisition Total 11,031 4,240 5,955 21,226

Forest Legacy Cooperative Forestry - Forest Legacy

- 31,998 54,758 86,756

Cooperative Forestry - Forest Legacy 

Program Administration - 1,470 2,176 3,646

Forest Legacy Total - 33,468 56,934 90,402

Other Appropriations Range Betterment Fund 217 416 636 1,269

Management of National Forest Lands for 

Subsistence Uses

187

25 909 1,122

Other Appropriations Total 404 441 1,545 2,390

Forest Service Discretionary Totals

$558,859 $461,552 $1,584,140 $2,604,551
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

246

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 2019. The table does not include the unobligated balances from offsetting 

collections such as reimbursable or advanced collections.

FY 2018 Forest Service – Unobligated Balances – End of Year (dollars in thousands)

Forest Service Appropriations Budget Line Item/Program

FY 2018 Unobligated 

Balance

Forest and Rangeland Research National Fire Plan Research and Development $29 

Forest Inventory and Analysis 233

R&D Forest Products Lab 1

R&D Joint Fire Science Program -

Research and Development Programs 4,224

Other Forest & Rangeland Research Programs 

(Includes Cost Pools) -1,605

Forest and Rangeland Research Total 2,882

State and Private Forestry Cooperative Fire Protection – National Fire 

Capacity 1

3,304

Forest Health Management – Cooperative 

Lands 1,665

Forest Health Management – Federal Lands 1,259

International Forestry 1,346

Landscape Scale Restoration 208

Cooperative Forestry – Community Forest & 

Open Space 226

Cooperative Forestry – Working Forest Lands 929

Cooperative Forestry – Urban &Community 

Forestry 584

Cooperative Fire Protection – Rural Fire 

Capacity 1

11

Supplemental Disaster Funds 5,189

Other State & Private Forestry Programs & 

Allocation (Includes Cost Pools) 12,002

State and Private Forestry Total 26,723

National Forest System Law Enforcement Operations 2,366

Land Ownership Management 2,977

Minerals and Geology Management 3,010

Land Management Planning 3,897
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

247

Forest Service Appropriations Budget Line Item/Program

FY 2018 Unobligated 

Balance

Grazing Management 1,032

Restoration Partnerships 60

Integrated Resource Restoration 1,009

Hazardous Fuels 9,123

Recreation, Heritage, and Wilderness 5,774

Forest Products 4,023

Vegetation and Watershed Management 3,093

Wildlife and Fish Habitat Management 2,141

Collaborative Forest Landscape Restoration 

Fund 1,287

Disaster Supplemental 16,246

Other National Forest System Programs and 

Allocations (Included Cost Pools) 5606

National Forest System Total 61,644

Capital Improvement and 

Maintenance Facilities 20,447

Roads 3,877

Trails 1,734

Legacy Roads and Trails 1,002

Deferred Maintenance 43

Disaster Supplemental 60,728

Other Capital Improvement & Maintenance 

Programs (Includes Cost Pools) 2,369

Capital Improvement and Maintenance 90,200

Land Acquisition Land Acquisition – Acquisition Management 938

Land Acquisition – Cash Equalization 183

Land – Critical Inholdings 220

Land Acquisition 30,131

Land Acquisition – Rec Access 1,428

Land Acquisition Total 32,900

Forestry Legacy Cooperative Forestry – Forest Legacy 2,750

Cooperative Forestry – Forest Legacy Program 

Administration 280

Forest Legacy Total 3,030

Other Appropriations Gifts, Donations & Bequest for Forest and 

Rangeland Research 119

Range Betterment Fund 2,339
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

248

Forest Service Appropriations Budget Line Item/Program

FY 2018 Unobligated 

Balance

Management of National Forest Lands for 

Subsistence Uses 47

Other Appropriations Total 2,505

Wildland Fire Management Fire Operations – Wildland Fire Preparedness2 60,820

Fire Operations – Wildland Fire Suppression 

Operations 26,940

Other Operations – Collaborative Forest 

Landscape Restoration Fund -

Wildland Fire Management – HazFuels –

Biomass Grants -

Integrated Resource Restoration – Hazardous 

Fuels 6,737

Other Operations – National Fire Capacity 288

Other Operations – Rural Fire Capacity 28

Other Wildland Fire Management Programs 

(Includes Cost Pools 37

Wildland Fire Management Total 94,850

FLAME FLAME Wildfire Suppression Reserve 

Account -

FLAME Total -
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

249

USDA WORKING CAPITAL FUND, DEPARTMENTAL SHARED COST PROGRAMS AND CENTRAL COST 

DISTRIBUTION PROGRAMS

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 agency within the Department of Agriculture (USDA), receives centrally managed, 

administrative services from the Department. These centrally administered programs are broken into two activities, 

the Working Capital Fund and Greenbook / 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 Forest Service demand for services. 

Forest Service estimates for the activities assessed on a Full-Time Equivalent (FTE) basis 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 many Federal entities outside USDA. 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. 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 supply 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 works with 

the Department’s Chief Financial Officer to review activities included in the Greenbook/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.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

250

FY 2017 to FY 2020 Working Capital Fund Assessments for the Forest Service (dollars in thousands)

Core Services

2017 

Actual

2018 

Actual

2019 

Estimate

2020 

Budget

Client Technology Services* $334 $332 $385 $392 

Mail and Reproduction Management 284 243 281 293 

Material Management Service Center 697 677 583 742 

Integrated Procurement Systems 8,423 7,813 8,266 8,137 

Creative Media and Broadcast Center 288 286 337 337

Enterprise Network Services 4,921 3,720 6,008 48,298 

Financial System (Financial Management Services) 54,238 48,745 49,870 50,035 

Internal Control Support Services 330 398 374 375 

Office of the Inspector Secretariat 874 787 506 502 

Total Core Services 70,389 63,001 66,610 109,111

USDA Agency Specific Services

2017 

Actual

2018 

Actual

2019 

Estimate

2020 

Budget

Mail and Reproduction Services $540 $469 $482 $483 

Enterprise Network Services 6,395 7,308 5,279 15,032

Material Management Service Center 877 697 902 892

Procurement Operations Division 141 147 129 133

Financial Shared Services 54,238 48,745 49,870 50,035

Creative Media and Broadcast Center 614 644 494 497

Client Experience Center* 14,283 13,553 20,255 19,595

National Finance Center 8,869 9,637 8,764 9,113

Digital Infrastructure Service Center* 21,862 18,469 32,245 32,123

HR Enterprise System Management 805 838 1,094 1,168

Office of the Executive Secretariat 874 787 506 502

Internal Control Support Services 330 398 374 374

Integrated Procurement Systems 8,423 7,814 8,267 8,137

Total USDA Agency Specific Services 118,251 109,507 128,659 138,086

*Forest Service contributions to the USDA Working Capital Fund are subject to a legislative cap of $82M. National Information Technology 

Center (NITC) and Client Experience Center are proposed to be excluded from the FY 2020 legislative cap.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

251

USDA Departmental Shared Cost Programs and Central Cost Distribution Programs

Central Cost Distribution Programs

USDA agencies pay a share of costs for external programs through shared cost program assessments. The Forest 

Service share is determined in a manner consistent with other USDA agencies. 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 these

program costs.

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 2017 to FY 2020 Department Shared Services & Central Cost Distribution Assessments for the Forest 

Service (dollars in thousands)

Central Cost Distribution Programs

2017 

Actual

2018 

Actual

2019 

Estimate

2020

Budget

GSA Space – NCRCDC $4,973 $5,276 $5,300 $5,300 

DHS GSA Building Security – NCRCDC 148 152 162 162 

U.S. Postal Service Mail – Agency specific 27 95 90 90

Unemployment Compensation 39,114 40,020 39,372 39,372

Workers Compensation 28,994 29,464 29,464 29,464

National Achieves Records System 446 600 700 700 

Ethics E-Filing 58 56 56 56 

Flexible Spending Accounts FSFEDS – Agency Specific 62 172 138 138 

FEMA Emergency Preparedness - 172 172 172 

Federal Audit Clearing Service 21 19 21 21

OPM Federal Employee Service and Admin Law Judges 185 185 186 186

Transit Subsidy 1,424 1,345 1,319 1,319 

Government-wide Council Activities 60 61 61 61 

GSA HSPD-12 LincPass Maintenance 1,486 1,661 1,661 1,661

E-Gov Initiatives 1,669 1,695 1,695 1,695

OPM Credit Monitoring Services 145 146 182 182 

Federal Government Priority Goals Program 28 28 28 28

eOPF Data Breach Credit Monitoring 207 181 165 165 

Department of State Passports 28 28 28 28

Total Central Cost Distribution Programs 79,075 81,356 80,800 80,800
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

252

Departmental Shared Cost Programs

2017 

Actual

2018 

Actual

2019 

Estimate

2020 

Budget

1890 USDA Initiatives $1,141 - - -

Advisory Committee Liaison Services 206 $216 $231 $231

Agency Partnership Outreach - 2,350 2,450 2,450

Classified National Security Information 225 - - -

Continuity of Operations Planning 628 - - -

Emergency Operations Center 722 - - -

Facility and Infrastructure Review and Assessment 140 - - -

Faith-Based and Neighborhood Partnership 124 - - -

Hispanic-Serving Institutions National Program 603 - - -

Honor Awards - 7 19 19

Human Resources Self-Service Dashboard 181 184 186 205

Human Resources Transformation 514 279 - -

Identity and Access Management (HSPD-12) 2,069 - - -

Intertribal Technical Assistance Network 926 979 994 994

Medical Services 39 35 50 50

Office of Customer Experience - 605 981 1,184

Peoples Garden 199 150 - -

Personnel and Document Security - 577 547 547

Personnel Security Branch 309 - - -

Security Detail 1,034 1,395 1,447 1,447

Security Operations - 3,272 3,316 3,316

TARGET Center 451 413 362 362

USDA 1994 Program 246 - - -

USDA Enterprise Data Analytics Services - - - 1,692

Virtual University 620 317 - -

Total Departmental Shared Costs Programs 10,374 10,778 10,585 12,499

The Fiscal Year 2020 Forest Service legislative cap for the Departmental Shared Cost Program activities is $14.5 million.
2020 USDA EXPLANATORY NOTES – FOREST SERVICE

253

FOREST SERVICE - WORKING CAPITAL FUND

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 Forest Service 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

2018

Actual

2019

Estimate 2020 Budget

Equipment - Fleet $172,515 $190,509 $192,730

Equipment - Fleet (GSA Leases) 11,273 11,723 12,192

Equipment - Aircraft 28,721 16,562 14,944

Nursery 11,064 11,506 11,967

Enterprise Services 42,726 44,435 46,212

Total 266,299 274,735 278,045

The FY 2019 Estimate and FY 2020 Budget estimates were calculated using approved five-year Cash Flow statements. Each year the five-year 

estimates can change based on specific needs at the time.